(Par Pr Cheikh FAYE)
Le 3 juin 2020, les leaders du Congrès de la Renaissance Démocratique (CRD) ont saisi, individuellement et collectivement, la Cour suprême de deux recours en annulation et de deux requêtes en référé contre les Décrets n° 2020-964 du 17 avril 2020 instituant un honorariat pour les anciens présidents du CESE et n° 2020-976 du 21 avril 2020 accordant le statut de Président honoraire à un ancien Président du Conseil Économique, Social et Environnemental (CESE).
Avant de revenir sur le fond en analysant les chances de succès d’une telle démarche, il convient de saluer, sur la forme, la cohérence et le sens de l’État des leaders du CRD. Ces derniers se sont montrés cohérents en allant jusqu’au bout de leur logique, ne se limitant pas seulement à dénoncer un énième scandale d’État. Ils ont engagé le combat pour, d’une part, préserver les deniers publics des prévarications d’une classe dirigeante beaucoup plus préoccupée par la jouissance du pouvoir et son confort au détriment du peuple et, d’autre part, faire respecter les fondamentaux d’un État de droit qui permettent et assurent « le vivre ensemble ». Les leaders du CRD ont aussi fait montre d’un sens élevé de l’État et, par ricochet, démontré le haut degré de conscience de leurs responsabilités qui les habite en menant la bataille là où il faut : devant la Justice, cet autre pilier, voire épine dorsale d’un État de droit. Ils ont saisi la Justice sans troubles à l’ordre public, sans insultes, sans menaces ni bravades inutiles tout en restant droits dans leurs bottes et fermes dans leurs convictions. C’est qui est à saluer et mérite d’être souligné dans un contexte où chacun(e) a tendance à vouloir se faire justice. La balle est désormais dans le camp de la Justice, à qui aucune dérobade n’est plus possible. Elle doit dire le droit conformément à sa mission, mais aussi pour la préservation de la paix sociale, car cette dernière ne saurait exister sans, au préalable, une justice équitable et juste aussi bien dans son administration que dans sa distribution.
Rappel des faits
• Le 14 mai 2020, on apprend que le Président Macky Sall a signé un décret accordant des privilèges énormes aux Présidents honoraires du Conseil économique, social et environnemental (CESE). Il s’agit du Décret no 2020-964 pris le 17 avril 2020, qui semble respecter toutes les règles d’un décret authentique prévues par la circulaire n° 00041 PM/SGG/SGA/P.A.T/SP du 06 octobre 2015 portant règles de présentation et de rédaction des textes législatifs et réglementaires.
• Le même jour, le Pôle Communication de la Présidence de la République sort un communiqué pour démentir l’existence du Décret no 2020-964. Son principal argument de défense se résume ainsi : ce Décret no 2020-964 n’est pas publié au Journal Officiel (J.O.), donc, il n’existe pas !
• Le 29 avril 202, le numéro spécial 7307 du J.O. publie le Décret n°2020-976 du 21 avril 2020 accordant le statut de Président honoraire à un ancien Président du Conseil économique, social et environnement (CESE). Le Décret 2020-964 dont l’existence est niée, fait partie des textes visés. Ce qui constitue la preuve de son existence.
• Le 24 mai 2020, jour de la Korité, le Sieur Yakham Mbaye exhibe sa version du Décret no 2020-964 en date 17 avril 2020 instituant l’honorariat pour les anciens présidents du Conseil économique, social et environnement (CESE). Ledit Yakham Mbaye n’a aucune qualité pour detenir en l’exclusivité d’un Décret non publié au Journal officiel encore moins en authentifier la teneur.
• L’objet de la saisine de la Cour suprême par le CRD
Le CRD a saisi la Cour suprême à travers deux recours en annulation et de deux autres requêtes en référé :
1) un recours en annulation contre le Décret no 2020-964 du 17 avril 2020 instituant un honorariat pour les anciens présidents du CESE et circulant en deux versions distinctes non publiées au J.O. pour illégalité manifeste ;
2) un recours en annulation contre le Décret n° 2020-976 du 21 avril 2020 accordant le statut de président honoraire à un ancien Président du Conseil Économique, Social et Environnemental (CESE) pour illégalité manifeste ;
3) une requête en référé mesures utiles (conservatoires) à l’encontre du Décret no 2020-964 du 17 avril 2020 instituant un honorariat pour les anciens Présidents du CESE et circulant en deux versions distinctes non publiées au J.O. invitant le juge à se prononcer dans les meilleurs délais aux fins de prendre urgemment les mesures nécessaires consistant notamment à apporter la clarification sur l’authenticité de deux décrets ayant le même numéro (2020-964), pris à la même date (17 avril 2020), portant sur le même objet (instituant un honorariat pour les anciens Présidents du CESE), ayant reçu la même onction (signature du Président de la République Macky Sall), mais aux contenus différents ;
4) une requête en référé suspension du Décret n° 2020-976 du 21 avril 2020 accordant le statut de Président honoraire à un ancien Président du Conseil économique, social et environnemental (CESE) invitant le juge à se prononcer dans les meilleurs délais aux fins de suspendre ses effets.
Position du droit
Sur la recevabilité
Pour qu’un recours ou une requête contre un acte administratif soit recevable, il faut que les personnes qui saisissent la Cour suprême aient la qualité pour agir (soient fondées à agir) et un intérêt à agir (s’estimer léser). Ces deux critères de recevabilité sont entièrement satisfaits par les leaders du CRD, qui rappelons-le, agissent à titre individuel et collectif.
En effet, sur la qualité pour agir, l’article 25-3 alinéa 3 de la Constitution dispose que « tout citoyen a le devoir de respecter et de faire respecter le bien public ». Les avantages et privilèges consentis aux Présidents honoraires sont tirés des ressources nationales lesquelles constituent un bien public. De surcroît, l’article 4 alinéa 1 de la Constitution dispose que « les partis politiques et coalitions de partis politiques concourent à l’expression du suffrage dans les conditions fixées par la Constitution et par la loi. Ils œuvrent à la formation des citoyens, à la promotion de leur participation à la vie nationale et à la gestion des affaires publiques ». Par conséquent, en agissant pour leur compte personnel, pour celui des partis qu’ils représentent ainsi que pour celui de leurs militants, les leaders du CRD ont manifestement qualité pour agir.
S’agissant de l’intérêt à agir, une jurisprudence récente de la Cour suprême conforte les leaders du CRD. Il s’agit de l’arrêt rendu par cette même Cour suprême le 26 septembre 2013 dans l’affaire Cheikh Tidiane Sy et autres C. / État du Sénégal, dans lequel il est précisé que « la notion d’intérêt s’entend comme le droit de ne pas souffrir personnellement de l’illégalité ». Collectivement, il n’y a pas de doute possible que l’octroi d’avantages et de privilèges indus tirés des ressources nationales est de nature à avoir un impact sur les deniers publics dans un contexte de raréfaction et de difficultés économiques de toute sorte pour des pans entiers de la population. Pris individuellement, de façon manifeste et indéniable, il est facile de démontrer que tous les requérants « souffrent personnellement de l’illégalité » entourant la prise de ces deux décrets. L’exemple du Premier ministre Abdoul Mbaye est édifiant à cet égard. Il « souffre personnellement de l’illégalité » résultant de la violation du Décret n° 2013-732 du 28 mai 2013 portant approbation du règlement intérieur du CESE qu’il avait contresigné. L’article 51 de ce Règlement Intérieur stipule que « sur proposition du Bureau, entérinée par l’Assemblée plénière, l’honorariat peut être accordé, par décret, à un(e) ancien(ne) Président(e) de Conseil ». Cela n’a pas été le cas, donc son contreseing, a été violé. Ce qui lui donne toutes les raisons d’ester en justice.
Au total, la recevabilité des recours et requêtes introduits par les leaders du CRD ne peut faire l’objet d’aucune contestation au regard des dispositions pertinentes de la Loi organique n° 2017-09 du 17 janvier 2017 abrogeant et remplaçant la loi organique n° 2008-35 du 08 août 2008 sur la Cour suprême et de la jurisprudence de cette même Cour. La Cour suprême n’a aucun autre choix en dehors de celui de déclarer recevables les recours et requêtes du CRD et, subséquemment, de les instruire.
Sur le fond
Les violations de la loi sont tellement grossières et manifestes que même un profane en sciences juridiques peut les apercevoir sans aucune difficulté et sans loupe. Ci-après, certaines violations de la légalité sont fournies pour étayer cette assertion.
Le Décret n° 2020-964 du 17 avril 2020 est superfétatoire, car l’article 51 du Règlement intérieur du CESE approuvé par le Décret n° 2013-732 du 28 mai 2013 institue déjà ce statut. En effet, aux termes des dispositions de cet article, « Sur proposition du Bureau, entérinée par l’Assemblée plénière, l’honorariat peut être accordé, par décret, à un(e) ancien(ne) Président(e) de Conseil ». Il résulte de cet article que le Président de la République ne peut prendre un tel décret que si les deux formalités suivantes sont satisfaites : 1) la proposition de conférer un statut honoraire doit émaner du Bureau du CESE ; 2) l’adoption, par l’Assemblée plénière, de cette proposition formulée par le Bureau. Ce qui rend le Décret n° 2020-964 du 17 avril 2020 illégal étant donné que le Président de la République n’a aucune compétence pour instituer l’honorariat pour les anciens Présidents du CESE.
Le Décret n° 2020-964 du 17 avril 2020, qui est un décret règlementaire, sur la base de laquelle le Président de la République s’est fondé pour octroyer le statut de Président honoraire du CESE à Mme Aminata Tall, n’est pas publié au J.O. Ce qui constitue une violation de la loi n° 70-14 du 06 février 1970 fixant les règles d’applicabilité des lois, des actes administratifs à caractère individuel, laquelle dispose en son article 2 que « les lois et actes administratifs à caractère réglementaire deviennent exécutoires : 1°) Dans la Région du Cap-vert et dans les communes de Diourbel, Kaolack et Thiès, le 3e jour suivant la date de dépôt au Secrétariat général de la Présidence de la République du Journal officiel dans lesquels ils sont insérés ; 2°) Dans le reste du territoire, le 5e jour suivant la même date ». Ce qui n’a pas été fait.
La perturbation de l’ordonnancement juridique avec la circulation, dans l’espace public, de deux versions distinctes du Décret n° 2020-964 du 17 avril 2020, toutes deux non publiées au J.O. La seconde version de ce décret est le fait d’une personne qui ne tire ni de la loi, ni d’aucun autre texte juridique la qualité pour publier un décret présidentiel. Lequel de ces deux décrets est faux ? Seule la Justice peut répondre à cette question et enjoindre l’État du Sénégal à publier au J.O. celui qui serait authentique.
Le Décret n° 2020-976 attribuant le statut de Présidente honoraire à Madame Aminata Tall est révélateur d’un unilatéralisme décisionnel du Président de la République. Le CESE est une institution de la République (article 6 de la Constitution). Le non-respect de ses procédures internes par le Président de la République, qui court-circuite son Bureau et son Assemblée plénière (une formalité substantielle), est une immixtion manifeste dans son fonctionnement interne. En procédant de la sorte, le Président de la République dénie au CESE son droit d’apprécier les mérites d’un(e) ancien(ne) Président(e) et de décider de l’opportunité de proposer sa nomination au statut de Président(e) honoraire. Ce qui constitue un vice de forme qui affecte le Décret n° 2020-976 et entache sa légalité.
Conclusion
Au regard de toutes ces raisons (de forme et de fond) évoquées ici et bien d’autres, les prétentions des leaders du CRD sont juridiquement fondées. La Cour suprême ne peut que déclarer recevables leurs recours et requêtes et y donner une suite favorable. Sinon, ce serait un déni de justice.
Pr Cheikh Faye
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mounted anywhere. So, if you are worried concerning the weather condition being kind enough
to provide you with enough power during a storm, then there is no need to worry.
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to keep excess electrical power produced.
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