Presentación de iniciativa de la Ley del Sistema de Participación Ciudadana y Gobernanza del Estado de Jalisco
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Presentación de iniciativa de la Ley del Sistema de Participación Ciudadana y Gobernanza del Estado de Jalisco...
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
DIPUTADOS DEL H. CONGRESO DEL ESTADO DE JALISCO PRESENTES
Con fundamento en lo dispuesto en los artículos 28 fracción II de la Constitución Política; y 4 fracciones I y XVIII de la Ley Orgánica del Poder Ejecutivo, ambos ordenamientos del Estado de Jalisco, presento ante esa Asamblea la siguiente INICIATIVA DE DECRETO, CON CARÁCTER DE PREFERENTE, POR EL QUE SE EXPIDE LA LEY DEL SISTEMA DE PARTICIPACIÓN CIUDADANA Y GOBERNANZA DEL ESTADO DE JALISCO; CAMBIA LA DENOMINACIÓN DEL CÓDIGO ELECTORAL Y DE PARTICIPACIÓN SOCIAL DEL ESTADO DE JALISCO A CÓDIGO ELECTORAL DEL ESTADO DE JALISCO; SE DEROGAN LA FRACCIÓN IV DEL ARTÍCULO 1, FRACCIÓN XIV DEL ARTÍCULO 2, LOS ARTÍCUL OS 210-A, 210-B, 210-B , 210-C, 210-D, 445-Ñ, 445-O, 445-P, 445-Q, 445-R, 445-S, ASÍ COMO EL LIBRO QUINTO DENOMINADO “DE LA PARTICIPACIÓN SOCIAL”, AL CUAL LE CORRESPONDEN CORRESPONDEN LOS ARTÍCULOS 385 AL 445; Y SE REFORMAN LOS ARTÍCULOS 114, 115 FRACCIÓN II, 134 FRACCIÓN XXX, XXXV Y XLII, 501 FRACCIÓN IV, 596 PUNTO 3, 601 FRACCIÓN II, 602 FRACCIÓN I, III Y IV DEL CITADO CÓDIGO ELECTORAL ; de acuerdo a la siguiente:
EXPOSICIÓN DE MOTIVOS: I. La fracción II del artículo 28 de la Constitución Política del Estado otorga al Gobernador del Estado la facultad de presentar iniciativas de leyes y decretos. II. Que en términos de lo dispuesto en el artículo 135 de la Ley Orgánica del Poder Legislativo del Estado de Jalisco, el Titular del Poder Ejecutivo del Estado de Jalisco puede presentar hasta tres iniciativas para trámite preferente o señalar con tal carácter hasta tres que hubiere presentado con anterioridad cuando estén pendientes de dictamen. III. En Jalisco, ante la insistencia de la ciudadanía por involucrarse en la toma de decisiones públicas, el 31 de enero de 1998 se aprobó por el Congreso del Estado la primera Ley de Participación Ciudadana, en la cual se pretendía que, a través de diversos mecanismos, la ciudadanía pudiera incidir en la vida política, económica, social y cultural. Asimismo, el 05 de agosto de 2008, el citado Congreso abrogó la Ley de referencia y emitió el Código Electoral y de Participación Ciudadana, en el cual además de establecer los mecanismos que ya se encontraban en la citada ley, incorporó nuevas figuras y procedimientos; sin embargo, se observó que la ciudadanía no ejercitó de manera recurrente los mecanismos aludidos, ya que aunque se encontraban establecidos dentro de un ordenamiento legal, existió
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desconocimiento de sus requisitos, alcances y en muchas ocasiones no lograron concretarse por los porcentajes solicitados para acceder a ellos. Cobra relevancia lo anterior, puesto que desde la aprobación de la primera Ley de Participación Ciudadana hasta la fecha, la ciudadanía y las asociaciones civiles, en colaboración con partidos políticos, han intentado acceder a los mismos sin tener resultados favorables, por lo que se citan algunos antecedentes antecedentes a continuaci c ontinuación: ón: a. El 17 de marzo de 2008, se presentó ante el Instituto Electoral Electo ral y de Participación Participa ción Ciudadana por parte de la Federación de Estudiantes de la Universidad de Guadalajara (FEU), solicitud de referéndum mediante la cual se pretendía derogar el decreto del entonces Gobernador del Estado, a través del cual se autorizaba el cobro de nuevas tarifas para el servicio público de transporte colectivo, no obstante, dicho mecanismo no logró su objetivo, ya que de una revisión de los requisitos esenciales para su procedencia, se advirtió que las personas solicitantes no lograban alcanzar el porcentaje requerido. b. El 16 de noviembre de 2009, el Partido Revolucionario Institucional (PRI) en coordinación con el frente metropolitano por una movilidad, presentaron ante el citado Instituto, solicitud de plebiscito respecto a la construcción de la línea dos del Macrobús, en razón a que la obra afectaría, modificaría y alteraría el patrimonio municipal, sin embargo, de nueva cuenta resultó improcedente el proceso ya que el requisito del porcentaje requerido no fue cumplido. c. El 14 de diciembre de 2011, la organización “Mexicanos por la vida de todos” presentó ante el Instituto Electoral y de Participación Ciudadana, solicitud de iniciativa popular para reformar el Libro Segundo del Código Civil del Estado de Jalisco, dicha solicitud cumplió con todos los requisitos establecidos en la ley, por lo que se admitió y se remitió al Congreso del Estado para su análisis, mismo que fue realizado por las comisiones de Puntos Constitucionales y Desarrollo Humano, en las cuales se desechó dicha iniciativa. De lo anterior, se advierte que es complicado tanto para la ciudadanía como para las asociaciones civiles y políticas, cumplir con los requisitos solicitados por la ley para acceder a dichos mecanismos. IV. En relación a lo que antecede, tanto la ciudadanía como los colectivos y organizaciones
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de la fracción parlamentaria de Movimiento Ciudadano, José Clemente Castañeda Hoeflich, Verónica Delgadillo García, Julio Nelson García Sánchez, Fabiola Raquel Guadalupe Loya Hernández y Salvador Zamora Zamora, colaboraron con el colectivo Congreso Ciudadano Jalisco, con la finalidad de que la población pudiera proponer iniciativas de ley para incentivar la participación ciudadana, mismas que fueron recepcionadas a traves de la plataforma “HAZ TU LEY”, y con las cuales los diputados ciudadanos de dicha fracción parlamentaria y el
colectivo de referencia, elaboraron un proyecto de Ley de Participación Ciudadana para el Estado de Jalisco, presentado, por las personas funcionarias públicas citadas, ante el Congreso del Estado el 24 de septiembre de 2013 1, el cual se justificó, entre otras cosas, en lo siguiente: a. La necesidad de la transformación del sistema político a través de las relaciones entre la sociedad y el Estado, construyendo canales de participación y vínculos de corresponsabilidad. b. La necesidad de una base institucional instituci onal sólida para la inclusión de las y los ciudadanos en la política. c. La importancia de la participación ciudadana y la necesidad de impulsar y consolidar la misma. d. La regulación hasta ese momento de los diversos mecanismos de participación ciudadana existentes en Jalisco en comparación con otras entidades federativas, concluyendo que a pesar de los esfuerzos resultaba incipiente y limitado el ejercicio de dichos mecanismos en nuestra entidad. Sin embargo, el 13 de diciembre de 2013, la citada iniciativa se sometió a estudio de las comisiones de Participación Ciudadana y Acceso a la Información Pública, así como de la Comisión de Asuntos Electorales, de las cuales nunca se emitió un dictamen. V. Asimismo, el día 13 de noviembre noviembre de 2015, la organización organización ciudadana ciudadana “Congreso “Congreso Ciudadano de Jalis co“, a través de su representante, Margarita Cristina Sierra Diaz de Rivera, presentó al Diputado Independiente y Presidente de la Comisión de Participación Ciudadana de la LXI Legislatura del Congreso del Estado, José Pedro Kumamoto Aguilar, la iniciativa de creación de la Ley de Participación Ciudadana presentada a la precedente LX Legislatura del Congreso del Estado, referida en el punto anterior, con el objetivo de que su
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contenido fuera analizado de nueva cuenta y propuesto al Pleno del Poder Legislativo para su análisis, estudio y en su caso, aprobación. aprobación. No obstante, el citado proyecto se sometió a análisis de todas las fracciones que integraban en ese momento el Congreso del Estado, y de la citada revisión se elaboró un proyecto de decreto mediante el cual se reformaba el Código Electoral y de Participación Ciudadana, para incorporar de la exposición de motivos del proyecto de origen, lo previsto en los considerandos Tercero y Cuarto; dicho proyecto fue aprobado por el Pleno. Resulta importante rescatar de aquel proyecto de iniciativa de la Ley de Participación Ciudadana, presentada por el “Congreso Ciudadano Jalisco“ en las LX y LXI Legislaturas, en los años 2013 y 2015, la exposición de motivos que justifica la lucha que se ha venido dando para la inclusión de la ciudadaní ciudadaníaa en la toma de decisiones públicas, los porcentajes para su acceso, así como algunas figuras de mecanismos que no se encuentran regulados en el ordenamiento vigente, mismos que son más claros y accesibles para su ejercicio, lo cual se tomó como referencia para la elaboración de la presente iniciativa. A continuación se cita textualmen textualmente te la exposición de motivos de las iniciativas referidas 2: “EXPOSICIÓN DE MOTIVOS Prevengo al lector que hablo aquí de un gobierno que sigue las voluntades reales del pueblo, y no de un gobierno que se limita solamente a mandar en nombre del pueblo. Alexis de Tocqueville, 1835. Debe haber alguna manera, alguna fórmula, que abra los oídos y desate las lenguas. Octavio Paz, 1941. PRIMERO.-
La transformación del sistema político y de las relaciones entre la sociedad y el Estado, es una de las grandes asignaturas pendientes en nuestro país. La construcción de canales de participación, de vínculos de comunicación y de relaciones de interacción y corresponsabilidad entre la ciudadanía y los gobiernos son algunas de las demandas más sólidas de la sociedad civil mexicana.
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La necesidad de construir espacios de participación ciudadana y de abrir las puertas de la toma de decisiones públicas, constituye el reflejo de un modelo de gobierno que no ha sabido responderle a las y los ciudadanos, que no ha logrado incluir sus voces en la configuración política, que no ha logrado representar de manera adecuada los intereses, necesidades y exigencias de la gente. Frente al descrédito de la política y los políticos, las ciudadanas y ciudadanos han construido sus propios espacios de participación, buscando abrir las puertas de las instituciones e intentando cambiar el rumbo de las decisiones. Es así que México ha atestiguado momentos históricos de despertar ciudadano, como la respuesta a la falta de atención de las autoridades ante el terremoto de 1985 en la Ciudad de México, como la crítica y la movilización social pacífica después de las elecciones cuestionadas de 1988, o más recientemente con los diversos movimientos sociales que han hecho un llamado a anular el voto y a abrir la toma de decisiones públicas. La participación de las ciudadanas y ciudadanos en la política no es desconocida en nuestro país y en nuestro estado; al contrario, ha sido una larga lucha que han dado miles de hombres y mujeres para sacudir la vida pública, para buscar transformaciones institucionales y para modificar la dinámica política. Estas batallas reflejan la determinación de la ciudadanía para participar en la política, para hablar y para hacer efectivas sus demandas. Es por ello que Alexis de Tocqueville señalaba en su obra La democracia en América, “que el gobierno de la democracia, debe, a la larga, aumentar las fuerzas reales de la
sociedad”. [1 De Tocqueville, Alexis, La Democracia en América, México, Fondo de Cultura Económica, 2002.] Para construir una concepción apropiada de la participación ciudadana tenemos que partir del principio constitucional que recoge la soberanía del ciudadano. El artículo 39 de la Carta Magna señala que: La soberanía reside esencial y originariamente en el pueblo. Todo poder público dimana del pueblo y se instituye para beneficio de éste. El pueblo tiene en todo momento el inalienable derecho de alterar o modificar su forma de gobierno. De lo anterior se desprende que los dispositivos legales deben avanzar hacia una mayor inclusión y reconocimiento de la participación de la ciudadanía en la vida pública.
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más allá de la participación en elecciones periódicas. El voto en elecciones democráticas no es el fin de la participación ciudadana, ni puede ser el único medio que tengan la ciudadanía para intervenir en la toma de decisiones. Amartya Sen ha señalado lo siguiente al respecto: En realidad, el voto es sólo un medio (aunque ciertamente un medio muy importante) para hacer efectivo el debate público, siempre y cuando la oportunidad de votar se combine con la oportunidad de hablar y escuchar sin temor alguno. La fuerza y el alcance de las elecciones dependen en gran medida de la posibilidad del debate público abierto. [2 Sen, Amartya, “El valor universal de la democracia”, Letras Libres, No. 34, julio de 2004.] Resulta incuestionable entender el sistema democrático como un conjunto de instituciones, normas y procedimientos que permiten la participación más amplia y directa de la ciudadanía. La participación en lo público constituye la esencia de la democracia, y por ello es indiscutible la necesidad de consolidar mecanismos efectivos de participación ciudadana, que vayan más allá de los procedimientos electorales.
El politólogo Robert Dahl, acuñaría el término de “poliarquía” para referirse a la forma de organización política “relativamente democrática”, en donde las dos principales dimensiones son, por un lado, la liberalización del debate público a través del goce de derechos y libertades, y por otro lado, el derecho a participar en ese debate público. Una poliarquía, de acuerdo con Robert Dahl, debe ser un régimen representativo, pero al mismo tiempo altamente abierto al debate público y a la participación. [3 Dahl,
Robert, “La poliarquía”, en Diez textos básicos de la ciencia política, Barcelona, Ariel, 2001.] Mientras mayor sea el grado de apertura del debate público y de la participación ciudadana, mayor será el grado de democratización de un sistema de gobierno. Bajo esta misma premisa, autores como Cornelius Castoriadis han distinguido entre la democracia como procedimiento y la democracia como régimen, resaltando los aspectos sustantivos y los fines de este sistema de gobierno: Considerar a la política como un trabajo que toca a todos los miembros de la colectividad de que se trata, que presupone la igualdad de todos y que apunta a
hacerla efectiva […]. Podemos entonces definir a la política como una actividad explícita y lúcida que atañe a la instauración de las instituciones que se desean, y a la
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explícita. [4 Castoriadis, Cornelius, “L a democracia como procedimiento y como régimen”, Vuelta, No. 227, octubre de 1995.] La democracia como régimen, señala el mismo autor, implica “la posibilidad efectiva y equitativa” de participar, con todas las consecuencias que ello implica, desde las transformaciones institucionales y procedimentales implicaciones en la organización de la sociedad.
necesarias,
hasta
las
Esta serie de premisas nos llevan a considerar al sistema democrático como un régimen que debe transitar hacia la más amplia apertura institucional, hacia los senderos del debate público abierto, libre y crítico, y hacia las formas de organización y participación directas de parte de las y los ciudadanos. TERCERO.- La
participación ciudadana y la necesidad de construir mecanismos para hacerla efectiva encuentra dos orígenes: en primer lugar, la concepción misma del régimen democrático, entendido más que como un conjunto de normas y procedimientos, como un espacio para la más amplia, libre y autónoma participación de las y los individuos en lo público. En segundo lugar, la necesidad de impulsar la participación ciudadana, encuentra como causa las deficiencias y limitaciones de nuestros sistemas de gobierno, en donde en muchos casos, se encuentra cancelada la posibilidad de participar en lo público y en donde las características mismas del sistema, alejan a las ciudadanas y ciudadanos de la política. En ese contexto es que han surgido diversos movimientos sociales que abogan por ampliar los canales de participación ciudadana y por construir mecanismos de inclusión y deliberación pública. Es así que en nuestro país se han consolidado una serie de demandas, por ejemplo, para formalizar la figura de las candidaturas independientes, ampliar los mecanismos de participación ciudadana directa y desarrollar herramientas de rendición de cuentas, deliberación y corresponsabilidad
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De acuerdo con el mismo autor, un sistema democrático debe contemplar los siguientes elementos: 1) participación efectiva, entendida como la oportunidad garantizada para intervenir en la esfera pública; 2) igualdad de voto; 3) comprensión ilustrada, que consiste en iguales oportunidades para conocer todas las alternativas y proposiciones; 4) control de la agenda, resumido como la facultad que tienen los miembros de la comunidad democrática para introducir cambios, e 5) inclusión de las y los adultos, entendido como la garantía de todos los anteriores derechos a los residentes permanentes de una comunidad. [6 Dahl, Robert, La democracia, una guía para la ciudadanía, México, Taurus, 1999.] De lo anterior se desprende que los instrumentos de participación ciudadana, deliberación e inclusión pública, resultan fundamentales para construir y consolidar un sistema democrático. La participación de las y los ciudadanos en la vida pública constituye la esencia misma de la democracia y representa una aspiración sustantiva del sistema mismo. La democracia no puede reducirse a la construcción de instituciones gubernamentales con poder limitado, ni puede evitar que la ciudadanía practique y ponga en marcha las instituciones más elementales de participación, deliberación e inclusión. Es por ello que el académico Alain Touraine identificó tres dimensiones de la democracia moderna: el respeto a los derechos fundamentales, la representatividad y la ciudadanía, entendiendo esta última como la construcción de espacios equitativos para la participación y la deliberación. [7 Touraine, Alain, ¿Qué es la democracia?, México, Temas de hoy, 1994.] De esta manera, la democracia no puede ser entendida sin instrumentos, mecanismos y procedimientos de participación ciudadana directa.
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
Todo lo anterior nos lleva a entender que la democracia sólo es tal si la ciudadanía tienen el poder efectivo de participar políticamente dentro de su comunidad, es decir, la democracia sólo existe cuando se propician y realmente se sientan las condiciones para que las ciudadanas y ciudadanos ejerzan las libertades que permiten la participación directa en los asuntos públicos. El teórico de la democracia, David Held, señala que la democracia implica una
“estructura común de acción política”, es decir, una autonomía igual para todos los ciudadanos con la que puedan participar políticamente. Este autor menciona que los derechos políticos dependen de las oportunidades de deliberación, en donde se debe
generar “un adecuado equilibrio entre la participación directa en los procesos de elaboración de decisiones políticas y la delegación legítima de estas tareas en las y
los representantes”. Así pues, la representación política, que es fundamental y necesaria para el funcionamiento del sistema democrático, no es suficiente, ya que se requieren canales de participación política sin la intermediación de representantes políticos. [9 Held, David, La democracia y el orden global. Del Estado moderno al gobierno cosmopolita, Barcelona, Paidós, 1997.] En otro contexto, resulta fundamental entender que la democracia no sólo tiene que ver con la construcción de instituciones para tomar decisiones, sino que debe buscar
consolidar “una cultura política en prácticas cotidianas”, y para ello se requiere abrir los canales de participación de los ciudadanos en lo público, ya que estos instrumentos permiten construir ciudadanía y desarrollar derechos: “la democracia
implica un modo de vida, un mundo cotidiano de relaciones”, ya que “una auténtica democracia no es factible sin una sociedad civil estructurada y una política integradora [...]. La democracia no puede sobrevivir en m edio de exclusiones”. [10 Alonso, Jorge, Democracia amenazada, amenazada, Jalisco, ITESO, 2002.] Construir una democracia de calidad requiere del impulso y la consolidación de los
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
En México, la mayoría de las entidades federativas reconoce estas mismas figuras, como Aguascalientes, Baja California, Baja California Sur, Coahuila, Colima, Chihuahua, Guanajuato, Michoacán, Morelos, Puebla, Quintana Roo, San Luis Potosí, Tabasco, Tamaulipas, Veracruz, Yucatán y Zacatecas. Algunas otras entidades federativas han legislado sobre mecanismos adicionales de participación ciudadana, como el Distrito Federal, que contempla en su ley secundaria específica diversos instrumentos de participación ciudadana y una amplia estructura de organización vecinal, contemplando mecanismos de participación asamblearia, diversas formas de consulta popular y procesos de rendición de cuentas de las autoridades. A pesar de los esfuerzos que se han realizado en diversas entidades federativas, la consolidación de un modelo institucional de participación ciudadana en México aún resulta incipiente y limitado, ya que existen diversos obstáculos procedimentales y aun (sic) carecemos de una cultura política deliberativa y abierta a las y los ciudadanos. La construcción de un esquema de participación democrática requiere, forzosamente, de una transformación institucional y normativa, que reconfigure los mecanismos procedimentales y reconozca diversas formas de organización, asociación y participación de la ciudadanía en la vida pública.
VI. El Gobierno de Jalisco considera como un eje rector para lograr la refundación del Estado, el crear un sistema de participación ciudadana y gobernanza mediante el cual se genere de manera ordenada un conjunto de lineamientos y procedimientos que regulen y garanticen el efectivo ejercicio del derecho humano a participar en la vida pública de nuestro estado, que involucre a todas las autoridades estatales, en sus distintos órdenes de gobierno, así como a las
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
imposición fiscal, servicios sociales universales…), son insuficientes frente a la magnitud de los nuevos y viejos problemas de la sociedad” 3.
En ese sentido, la gobernanza se convierte en impronta ineludible para todo ejercicio de gobierno y, por ende, en la obligación de toda autoridad para abrir a las y los ciudadanos sus procesos de planeación, diseño, implementación y evaluación de políticas públicas. El sistema de participación ciudadana y gobernanza que proponemos busca integrar a toda las autoridades del Estado en un esquema de corresponsabilidad con el ciudadano, que legitime la toma de decisiones conjuntas y que derive en un ejercicio de gobierno más efectivo y directo. El modelo de gobernanza que imaginamos se construye de ida y vuelta: por un lado, con la ciudadanía haciendo uso de un amplio número de procedimientos de participación, con requisitos más accesibles e incluyentes; por el otro, con autoridades comprometidas y convencidas de abrir auténticos espacios de interacción y articulación con los distintos sectores de la sociedad. s ociedad. Este sistema tendría como principal objeto el establecer los principios, bases generales, políticas y procedimientos para la coordinación entre los diversos órganos y autoridades del Estado y los municipios, respetando en todo momento las facultades constitucionales que cada órgano o autoridad tiene conferidas, así como sentar las bases para la emisión de políticas públicas integrales que garanticen el desarrollo de este derecho ciudadano. Entre los objetivos específicos que se buscan alcanzar con este sistema, se encuentra el facilitar la colaboración entre las autoridades que tengan bajo su responsabilidad promover o implementar mecanismos o procedimientos de participación ciudadana, para la generación de proyectos y políticas que redunden en una mayor y más precisa atención de las necesidades y preocupaciones que atañen a la sociedad.
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
b. El o la Consejera Electoral que presida la Comisión de Participación Ciudadana del Instituto Electoral y Participación Ciudadana del Estado de Jalisco. c. Una o un representante del Comité de Participación Social del Sistema Estatal Anticorrupción. d. Una persona académica de las universidades asentadas en el estado; e. Una persona representante del sector empresarial; f. Una persona miembro de organizaciones organizacione s de la sociedad civil con domicilio en el Área Metropolitana de Guadalajara; g. Una persona miembro de organizaciones de la sociedad civil con domicilio en el interior del estado; h. Una persona representante de los pueblos originarios del estado; i. Una persona representante de la comunidad de personas con discapacidad en el estado; j. Una persona persona representante representante del movimiento de mujeres mujeres y/o feminista en el estado; estado; 4 k. Una persona representante de la Comunidad LGBTTTIQ+ LGBTTTI Q+ en el estado. Este Consejo tendría entre sus atribuciones y facultades, el definir la política de participación ciudadana y gobernanza, establecer su planeación, realizar recomendaciones de política
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participación ciudadana, de los cuales sólo han sido procedentes 6 (4 iniciativas populares y 2 consultas populares), como se desprende de la siguiente tabla 5: No
1
2
3
Año
Mecanismo Mecanismo
Resolución Resolución
2006
Iniciativa popular para modificar el Código de procedimientos Civiles de Jalisco
Improcedente
2006
Iniciativa popular para añadir artículos a la Ley de Obras Pública
Improcedente
2006
Iniciativa popular para nueva Ley sobre desarrollo armónico y sustentable
Improcedente
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
9
10
11
12
13
2006
Iniciativa popular sobre pensiones para adultos mayores de 70 años
Procedente
2008
Iniciativa popular para reformar la Constitución local
Procedente
2011
Iniciativa popular para el Código Civil sobre la familia
Procedente
2016
Iniciativa popular sobre la dignidad de los derechos de las personas en el transporte público
Se desecha
2017
Consulta popular sobre la ciclovía Marcelino García Barragán
Procedente
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
19
20
21
22
23
2017
Iniciativa popular sobre el sistema anticorrupción
Procedente
2017
Revocación de mandato Presidente Municipal de Ameca
Se desecha
2017
Revocación de mandato presidente Municipal de Arandas
Se desecha
2017
Revocación de mandato Presidente de Cañadas de Obregón
Se desecha
2017
Revocación de mandato Presidente Municipal de Casimiro Castillo
Se desecha
Revocación de mandato presidente
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29
30
31
32
33
2017
Revocación de mandato Presidente Municipal de Mazamitla
Se desecha
2017
Revocación de mandato Presidente Municipal de Ojuelos
Se desecha
2017
Revocación de mandato Presidente Municipal de Poncitlán
Se desecha
2017
Revocación de mandato Presidente Municipal de San Gabriel
Se desecha
2017
Revocación de mandato Presidente Municipal de San Ignacio Cerro Gordo
Se desecha
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39
40
2017
2017
Revocación de mandato Presidente Municipal de Tamazula de Gordiano
Revocación de mandato Presidente Municipal de Tapalpa
Revocación de mandato Presidente
Se desecha
Se desecha
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49
2017
Plebiscito sobre diversos puntos de acuerdo aprobados por el Ayuntamiento de Tlaquepaque
Infundados e inoperantes
Así, de las consideraciones antes expuestas se desprende que es necesario retomar las propuestas ciudadanas que se han presentado con anterioridad, para tomar lo mejor de ellas y consolidar un proyecto de ley que se encuentre sustentado con los deseos y expectativas
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V.
VI.
territorial específica, como colonias, conjunto de colonias, fraccionamientos, delegaciones, pueblos o comunidades. La iniciativa iniciativa ciudadan ciudadana. a. Es el instrumento instrumento a través través del cual las las y los ciudadanos ciudadanos pueden hacer propuestas para reformar la legislación vigente tanto estatal como municipal, la cual consiste en que una o un ciudadano o un grupo de personas ciudadanas puedan hacer uso de esta figura, siempre y cuando acudan al Congreso del Estado a las reuniones a las que sean citados para discutir, evaluar y dictaminar sus iniciativas. El presupuesto participativo. participativ o. Es una herramienta de gestión y participación participac ión ciuda ciudadana dana
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
XV.
XVI.
territoriales o regiones de sus municipios, mismas que deberán considerarse considerar se para la toma de decisiones públicas. La contraloría social. Se define como un tipo de participación participac ión ciudadana innovadora orientada al control, vigilancia y evaluación por parte de personas y organizaciones civiles de las políticas, planes, programas y acciones gubernamentales, que promueve una rendición de cuentas vertical/transversal con la finalidad de incidir en las decisiones públicas públicas y en el manejo eficiente y eficaz de los recursos públicos La colaboración ciudadana. Consiste en que los habitantes del Estado en conjunto con los diferentes niveles gobierno, de manera voluntaria, participan en la ejecu ejecución ción de
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I. II. III. IV. V. VI. VII.
Plebiscito; Referéndum; Consulta ciudadana; Ratificación constitucional; constitucional; Presupuesto participativo; Ratificación de mandato; y, Revocación de mandato.
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
Si la solicitud cumple con los requisitos, la Secretaría la turnará al Instituto para que éste solicite apoyo a la Dirección Ejecutiva del Registro Federal de Electores para verificar que se haya reunido el porcentaje de apoyo ciudadano que corresponda. Una vez recibido el dictamen y de haberse reunido el apoyo necesario, el Consejo decretará el inicio del proceso de participación ciudadana de que se trate y emitirá la convocatoria respectiva, y la remitirá al Instituto para su publicación. La jornada de participación deberá realizarse a más tardar dentro de los siguientes sesenta días naturales a la declaratoria de procedencia, salvo que esta Ley señale otro plazo. El Instituto, de conformidad con las necesidades particulares y específicas del proceso, regulará lo relativo a la metodología y mecanismos más idóneos para su organización, que deberán garantizar la mayor participación ciudadana, transparencia transparencia y certeza jurídica. La convocatoria deberá contener lo siguiente: I. La fecha y horarios en que se realizará la jornada de participación, participac ión, así como los lugares en los que podrán votar las y los ciudadano c iudadanos; s; II. El acto que se somete ya sea a plebiscito, referéndum, iniciativa popular estatal y municipal, ratificación constitución o consulta ciudadana y una descripción del mismo; III. La autoridad de la que emana el acto; IV. Un resumen de la exposición de motivos de quien solicita alguno de dichos mecanismos de participación ciudadana; V. El ámbito territorial territorial de aplicación aplicación de la consulta; y VI. El número de personas ciudadanas inscritas en la lista nominal que tienen derecho a participar, así como el porcentaje mínimo requerido para que el resultado en su caso pueda ser vinculatorio. Artíc Ar tíc ulo ul o 116. El Instituto validará los resultados en un plazo no mayor a siete días naturales después de celebrada la jornada de participación. Los resultados y la declaración de los efectos del mecanismo de participación, serán enviados al titular del Poder Ejecutivo para su publicación en el Periódico Oficial “El Estado de Jalisco”, o en su caso, al titular del Ayuntamiento que
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
Artíc Ar tíc ulo ul o 117. El costo de la organización y desarrollo de los mecanismos de participación ciudadana será a cargo de: I. Las autoridades solicitantes, cuando soliciten o convoquen a accionar un mecanismo de participación ciudadana; y II. La autoridad que organice el proceso de consulta, cuando la solicitud se presente por la ciudadanía. La Secretaría de la Hacienda Pública deberá proporcionar en cada caso al Instituto, los recursos que sean necesarios para la organización de las jornadas de participación que le correspondan en los términos de la presente ley. Artíc Ar tíc ulo ul o 118. La emisión del sufragio en los mecanismos de participación ciudadana y la recepción del mismo se realizará preferentemente por medios electrónicos, siempre que se garantice que el voto sea libre, secreto, universal e intransferible. Cuando sea posible la consulta o jornada comicial se celebrará el mismo día de la elección constitucional. constitucional. Artíc Ar tíc ulo ul o 119. Es aplicable a la jornada de participación de los mecanismos de participación ciudadana cuando proceda, lo dispuesto para la jornada electoral en la Ley General de Instituciones y Procedimientos Electorales, que no contravenga disposiciones de esta ley. Artíc Ar tíc ulo ul o 120. Transcurridos los términos de impugnación o cuando causen ejecutoria las resoluciones de los órganos jurisdiccionales competentes, la autoridad que lleve a cabo los procesos de participación ciudadana, declarará los resultados del proceso de participación ciudadana y remitirá los resultados definitivos, al titular del Poder Ejecutivo del Estado para que ordene su publicación en el periódico oficial “El Estado de Jalisco” o al Pre sidente Municipal, para su publicación en la Gaceta Municipal respectiva. Asimismo, se deberá notificar a la autoridad señalada y sobre la que recae la resolución la declaratoria de los resultados del proceso de participación participación ciudadana.
El resultado del mecanismo de participación ciudadana surtirá efectos al día siguiente de la publicación que señala el párrafo anterior. Capítulo II Revocación y Ratificación de Mandato
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
Artíc Ar tíc ulo ul o 121. La preparación para el proceso de revocación o ratificación de mandato comprende los actos siguientes: I. La publicación del acuerdo en el que se declare la procedencia; II. La aprobación de la circunscripción territorial territoria l donde se aplicará el proceso de consulta y las secciones electorales que lo componen; III. La integración, integración, ubicación y publicación publicación de las mesas directivas de casilla; y IV. La elaboración y entrega de la documentación y material electoral. Artíc Ar tíc ulo ul o 122. El acuerdo que declare la procedencia deberá contener la fecha de realización de la consulta y se publicará en el periódico oficial “El Estado de Jalisco” dentro de los cinco días hábiles siguientes a la fecha de su aprobación.
El Instituto podrá solicitar al Consejo una ampliación o modificación de los plazos y términos establecidos para el desarrollo del proceso comicial cuando a su juicio exista imposibilidad material para realizar los actos previstos para su desarrollo, desarrollo, sin que pueda la ampliación exceder de treinta días naturales de la fecha señalada inicialmente. El acuerdo que determine ampliaciones o modificaciones a los plazos y términos deberá estar fundado y motivado y contener la fecha de realización de la consulta y se publicará en el periódico oficial “El Estado de Jalisco” dentro de los cinco días hábiles siguientes a la fecha de su aprobación. Artíc Ar tíc ulo ul o 123. El Instituto, según las necesidades del proceso y el ámbito territorial de aplicación, determinará la estructura mínima para que se realice la consulta de revocación de mandato. El Instituto podrá establecer las instancias calificadoras que requiera el caso, las que hará el cómputo de los votos emitidos y tendrán las atribuciones que señale esta Ley y que acuerde el Consejo General. Las personas solicitantes y la o el funcionario sujeto a revocación de mandato podrán nombrar una persona representante propietaria y una suplente, ante la instancia calificadora que se establezca. En el proceso de revocación de mandato no procede el nombramiento de representantes de partidos políticos ante la instancia calificadora. Artíc Ar tíc ulo ul o 124. La revocación de mandato se realizará preferentemente a través la urna electrónica o cualquier medio digital. Artíc Ar tíc ulo ul o 125. El Instituto, de conformidad con las necesidades particulares y
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en mismo número por sección electoral que en el proceso electoral en que resultó electo el funcionario sometido a revocación. El Instituto debe instalar cuando menos menos la misma cantidad de casillas que en el proceso electoral en que fue electo el funcionario sujeto a revocación de mandato. Artíc Ar tíc ulo ul o 126. 12 6. La designación de las personas integrantes de las mesas directivas de casilla se sujetará a las disposiciones siguientes: I. En primer término se nombrará a las y los ciudadanos que fungieron como funcionarios y funcionarias de casilla en las últimas elecciones ordinarias locales; en caso de no ser localizados, serán llamados sus suplentes s uplentes;; y II. En caso de que no se complete el número número de funcionarios y funcionarias funcionarias de casilla se estará a lo que acuerde el Instituto, sujetándose a lo dispuesto en la normatividad electoral. En el proceso no procede el nombramiento de representantes de partidos políticos en casillas. Las personas solicitantes y la o el funcionario sujeto a revocación de mandato podrán nombrar una persona representante propietaria y una suplente, ante cada mesa directiva de casilla que se establezca. Artíc Ar tíc ulo ul o 127. 12 7. El proceso de consulta inicia con la publicación del acuerdo del Consejo por medio del cual declare la procedencia. Artíc Ar tíc ulo ul o 128 12 8. Para la emisión del voto se imprimirán las boletas electorales conforme al modelo que apruebe el Instituto. Las boletas deben contener: I. Entidad, Municipio y Distrito, de conformidad con la naturaleza naturaleza del sufragio y la aplicación territorial del proceso; II. Sello del Instituto y firmas impresas del Consejero Presidente y Secretario Ejecutivo del mismo; III. Talón desprendible con folio; IV. La pregunta sobre si la o el ciudadano revoca o no el mandato sujeto a consulta; V. Cuadros o círculos círculos para el SÍ y para el NO; y VI. El nombre completo y cargo de la persona sometida a consulta de
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
En caso de que se utilice el dispositivo de recepción electrónica, el Instituto aprobará el modelo que corresponda. Artíc Ar tíc ulo ul o 129. 12 9. No podrá llevarse a cabo campaña alguna por parte de las y los solicitantes ni de la o el funcionario sujeto a revocación de mandato o de terceros. Artíc Ar tíc ulo ul o 130. 13 0. La instancia calificadora hará el cómputo de los votos emitidos y enviará al Consejo General del Instituto la totalidad de las actas de escrutinio y el resultado final de la votación. El Instituto hará el cómputo de los votos emitidos cuando no se establezcan instancias calificadoras; y el Consejero Presidente del Instituto remitirá el expediente completo al Consejo, para que éste declare oficialmente los resultados del proceso de revocación o ratificación de mandato y en su caso, declare la revocación de mandato del funcionario, dentro de los cinco días hábiles siguientes a la jornada de participación. La revocación o ratificación de mandato declarada y publicada en los términos de los párrafos anteriores surte efectos al día siguiente de que: a) Transcurra el plazo para impugnar y no se presente el medio de defensa respectivo; o b) Que cause ejecutoria la resolución del medio de impugnación presentado y ésta confirme la revocación de mandato declarada por el Instituto. Se estará a lo dispuesto a las normas relativas a cubrir las suplencias de las y los funcionarios de elección popular. TÍTULO SÉPTIMO RECURSOS RECURSOS EN MATERIA DE PARTICIPACIÓN CIUDADANA Capítulo Único Recurso de Apelación Artíc Ar tíc ulo ul o 131. Los actos, omisiones o resoluciones definitivas que emanen de la autoridad encargada de los procesos de participación ciudadana, podrán ser impugnados mediante el recurso de apelación, el cual será resuelto por el Tribunal. Artíc Ar tíc ulo ul o 132. Para la interposición, tramitación y resolución de los recursos de apelación previstos en este capítulo, deberán seguirse las reglas previstas en los
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
TÍTULO OCTAVO RESPONSABIL RESPONSABILIDADES IDADES EN MATERIA DE PARTICIPACIÓN PARTICIPACIÓN CIUDADANA Capítulo Capítulo I Respons Respons abilidades abilidades de l os Partidos Políticos Políticos Artíc Ar tíc ulo ul o 133. Los partidos políticos no podrán intervenir de forma alguna en los procesos de participación participación ciudadana ciudadana.. Cuando los instrumentos de participación social sean promovidos por la ciudadanía, ningún representante de partido o agrupación políticos podrá fungir como representante común. El Consejo General del Instituto sancionará, conforme a lo dispuesto en los Capítulos I y II, del Título Segundo, del Libro Sexto del Código Electoral del Estado de Jalisco, a los partidos políticos o representantes de partido o agrupación políticos, por la violación a lo dispuesto en este artículo, con multa de tres mil a diez mil veces el valor diario de la Unidad de Medida y Actualización. Capítulo II Respons Respons abilidades abilidades d e los Servidor Servidor es Públicos Artíc Ar tíc ulo ul o 134. Las y los servidores públicos que no acaten los resultados emanados de los procedimientos de participación ciudadana vinculatorios, incurrirán en una falta administrativa no grave y serán sancionados por el Órgano Interno de Control respectivo, con multa de cinco mil a diez mil veces el valor diario de la Unidad de Medida y Actualización, conforme al procedimiento previsto en la Ley de Responsabilidades Responsabilidades Políticas y Administrativas Administrativas del Estado de Jalisco. Además, el incumplimiento de los efectos de los resultados de los instrumentos de participación ciudadana vinculantes se considera omisión que redunda en
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Artíc Ar tíc ulo ul o 136. Las publicaciones que se requieran a las personas directoras o responsables del periódico oficial “El Estado de Jalisco” o gacetas municipales
para efecto de la preparación, convocatoria y difusión de resultados de alguno de los mecanismos contemplados en la presente ley, serán obligatorias para dichos funcionarios y estarán exentas del pago de derechos fiscales. Las y los servidores públicos que directamente o indirectamente contribuyan al incumplimiento de este precepto, quedarán sujetos a las sanciones previstas en la Ley de Responsabilidades Responsabilidades Políticas y Administrativas del Estado de Jalisco. TÍTULO NOVENO NOTIFICACIONES Capítulo Único Reglas de las Notificaciones Artíc Ar tíc ulo ul o 137. Las notificaciones referidas en el presente ordenamiento surtirán efectos al día siguiente al que se practiquen. Artíc Ar tíc ulo ul o 138. 13 8. Las notificaciones podrán realizarse: I. Personalmente; II. Por lista, la cual se fijará fijará en un lugar lugar visible de la Secretaría Secretaría o Instituto; Instituto; y III. Por oficio, correo certificado o por telegrama o cualquier medio de comunicación que se considere idóneo siempre que exista la posibilidad de recabar constancia indubitable de la diligencia, salvo disposición en contrario de las leyes aplicables en la materia. Artíc Ar tíc ulo ul o 139. Las notificaciones se deberán acompañar o fijar con la cédula respectiva, la cual contendrá los siguientes requisitos:
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lugar visible del mismo domicilio y asentará en el expediente correspondiente la razón, así como procederá a fijar la constancia en los estrados o el lugar designado para las notificaciones por lista. Artíc Ar tíc ulo ul o 141. En todos los casos, al realizar una notificación personal, se dejará en el expediente la cédula respectiva y copia del acuerdo o resolución, asentando razón de la diligencia. Artíc Ar tíc ulo ul o 142. Cuando las personas promoventes o comparecientes omitan señalar domicilio, éste no resulte cierto o se encuentre ubicado fuera de la ciudad en la que tenga su sede la autoridad que emite el acto a notificar, la diligencia se practicará por lista, levantando para constancia, razón de la referida eventualidad. Artíc Ar tíc ulo ul o 143. La notificación por correo se hará en pieza certificada con acuse de recibido, debiendo agregarse al expediente el acuse del recibo postal. La notificación por telegrama se hará enviándola por duplicado a efecto de que la oficina que la transmita devuelva un ejemplar sellado, el cual será agregado al expediente. ARTÍCUL O SEGUNDO. SE GUNDO. Se cambia la denominación del Código Electoral y de Participación Social del Estado de Jalisco a Código Electoral del Estado de Jalisco, deroga la fracción IV del artículo 1, fracción XIV del artículo 2, los artículos 210-A, 210-B, 210-C, 210-D, 445-Ñ, 445-O, 445-P, 445-Q, 445-R, 445- S, así como el Libro Quinto denominado “De la Participación Social”, al cual le corresponden los artículos 385 al 445 y reforma los artículos 114, 115 fracción II, 134 fracción XXX, XXXV y XLII, 501 fracción IV, 596 punto 3, 601 fracción II, 602 fracción I, III y IV del citado Código Electoral, Electoral, para quedar como siguen: CÓDIGO ELECTORAL DEL ESTADO DE JALISCO
Artículo 1.
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
Artículo 114. 1. El Instituto Electoral y de Participación Ciudadana del Estado de Jalisco, depositario de la autoridad electoral, es responsable del ejercicio de la función estatal de organizar las elecciones y los procedimientos de los mecanismos de participación ciudadana que sean competencia del Instituto conforme a la ley de la materia. Artículo 115.1. […] I. […]
II. Organizar, desarrollar, computar y declarar los resultados de los mecanismos de participación ciudadana que sean competencia del Instituto conforme a la ley de la materia; III. a VI. […] 2. […]
Artículo 134.1. […] I. a XXIX. […]
XXX. Asesorar y capacitar a la ciudadanía y a las organizaciones sociales e instituciones públicas o privadas, a solicitud de estos, para la preparación y organización de elecciones internas, así como en lo referente a los mecanismos de participación ciudadana que sean competencia del Instituto conforme a la ley de la materia; XXXI. a XXXIV. […]
XXXV. Publicar la convocatoria para la celebración de los procesos de participación ciudadana de su competencia, en los términos de la ley de la
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Artículo 210-A. DEROGADO. Artículo 210-B. DEROGADO. Artículo 210-C. DEROGADO. Artículo 210-D. DEROGADO. Libro Quinto De la Participación Ciudadana. Art. 385 al Art. 445-N. DEROGADOS. Título Décimo Sexto De los Recursos en Materia de Participación Social. Capítulo Único Artículo 445-Ñ. DEROGADO. Artículo 445-O. DEROGADO. Artículo 445-P. DEROGADO. Artículo 445-Q. DEROGADO. Artículo 445-R. DEROGADO. Artículo 445-S. DEROGADO. Artículo 501. 1. […] I. a III. […]
IV. Los medios de impugnación precedentes que en lo conducente sean aplicables para dirimir controversias respecto de los procesos de mecanismos de participación ciudadana que sean competencia del Instituto;
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
II. La resolución del recurso de apelación en materia de participación ciudadana. Artículo 602. 1. Podrán interponer el recurso de apelación: I. Los partidos políticos, coaliciones y sus personas candidatas, candidaturas independientes o agrupaciones políticas con registro, a través de sus representantes legítimos; salvo en materia de mecanismos de participación ciudadana; II. […]
III. Los promoventes o su representante común en los procesos relativos a los mecanismos de participación ciudadana que sean competencia del Instituto; y IV. El Poder Ejecutivo, el Poder Legislativo y los ayuntamientos, en los procesos relativos a los mecanismos de participación ciudadana que sean competencia del Instituto. TRANSITORIOS
PRIMERO. El Presente decreto entrará en vigor al día siguiente de su publicación en el Periódico Oficial “El Estado de Jalisco”.
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DIELAG ACU. 008/2019 DIRECCIÓN DE ESTUDIOS LEGISLATIVOS Y ACUERDOS GUBERNAMENTALES.
ATENTAMENTE ATENTA MENTE GUADALAJARA, JALISCO, A 14 DE FEBRERO DE 2019
ENRIQUE AL ENRIQUE ALFARO FARO RAMÍREZ GOBERNADOR CONSTITUCIONAL DEL ESTADO DE JALISCO
JUAN ENRIQUE IBARRA PEDROZA SECRETARIO GENERAL DE GOBIERNO
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