(Par Valdiodio Ndiaye Diouf)
L’affaire est pour le moins ahurissante. Le Journal officiel de la République du Sénégal manque une dent : il comporte le décret n° 2020-965, alors que le décret n° 2020-964 qui le précède n’y figure pas. Pourtant – fait insolite – ce dernier est visé par une décision ultérieure accordant le statut de Président honoraire du CESE à Mme Aminata Tall (décret n° 2020-976). Mais le plus grave dans l’histoire est qu’il existe deux versions complètement différentes du décret n° 2020-964 qui circulent de manière clandestine. Dans l’une ou l’autre version, il est question de l’institution d’un honorariat au profit des ancien(ne)s président(e)s du CESE. En revanche, la première mouture du décret litigieux prévoyait des avantages indécents pour les bénéficiaires. Finalement, la cellule de communication de la présidence de la République s’est fendue d’un communiqué pour essayer de remettre en cause son authenticité à la suite d’une vive indignation des sénégalais dans la foulée de sa divulgation.
L’illégalité manifeste du décret n° 2020-964 a été mise en évidence notamment par la sortie du Congrès de la Renaissance Démocratique (CRD) et les nombreuses réactions que cette affaire a suscitées. Par la décision contestée, le chef de l’État modifie le Règlement intérieur du CESE qui comportait déjà une disposition instituant l’honorariat des ancien(ne)s président(e)s de cette institution (voir art. 51 dudit Règlement), alors qu’il ne lui appartient pas d’effectuer une telle révision. Partant, la décision octroyant le statut de Président honoraire à Mme Aminata Tall est dépourvue de base légale, d’autant que le décret n° 2020-964 qui lui sert de fondement juridique n’a pas été publié au JO et ne peut donc pas produire pleinement ses effets juridiques. Au même titre que la loi, un acte réglementaire – ce qu’est le décret n° 2020-964 – ne peut pas être mis en œuvre avant sa publication au JO.
Il ne fait donc pas de doute que cette décision du chef de l’État méconnaît la loi. Aussi, convient-il d’attirer l’attention des juges de la Cour suprême saisis de cette affaire et des sénégalais sur une certaine position tenue par tel juriste. Quelqu’un a pu dire que le décret n° 2020-964 est un « acte de gouvernement » et qu’il échapperait, par conséquent, à la compétence du juge. Cet argument est tout simplement intenable. Un « acte de gouvernement » est une décision édictée par une autorité administrative et qui bénéficie d’une immunité juridictionnelle parce qu’il porte sur une matière pour laquelle le constituant a donné une grande liberté d’action politique à cette autorité administrative. Pour cette raison, le juge administratif ne peut pas en connaître. Ainsi, les nominations présidentielles ne peuvent être déférées devant le juge. La première catégorie des actes de gouvernement concernait surtout les décisions relatives aux rapports entre les pouvoirs publics. Le décret n° 2020-964 ayant pour objet d’instituer l’honorariat pour les ancien(ne)s président(e)s du CESE, il relève en substance du domaine de prédilection des actes de gouvernement. Pourtant, il n’en est rien. Que les juges de la Cour suprême ne soient surtout pas tentés d’aller chercher sur ce terrain-là. La théorie des actes de gouvernement suppose d’abord que l’auteur de la décision dispose d’une compétence pour édicter celle-ci. Or, tel n’est pas le cas en l’espèce car le chef de l’État n’a pas le pouvoir de modifier le Règlement intérieur du CESE.
Fondamentalement, cette affaire est plus sérieuse qu’on ne le pense. D’une part, elle achève la fragilisation des institutions de la République. Le chef de l’État a permis ou, à tout le moins, toléré qu’une décision dont il est lui-même l’auteur soit communiquée aux sénégalais par l’entremise de M. Yakham Mbaye qui n’en a aucune autorité. Pourtant, il suffisait d’un clic pour que la décision soit publiée au JO, qui est le support par excellence de l’information juridique des sénégalais. À la place, le Président de la République a choisi la clandestinité et, dans cette voie, préféré passer par le directeur du journal « Le Soleil » plutôt que de se référer à une autorité au moins habilitée à communiquer au nom du Gouvernement. Il en résulte que nos représentants sont prêts à piétiner les institutions pour sauver leur « honneur de paille ». On ajoutera que la signature du chef de l’État aurait été falsifiée sans que le procureur de la République ne juge opportun de se saisir de l’affaire.
D’autre part, le refus de publier des décisions réglementaires au JO montre qu’il existe au Sénégal un droit officiel et un droit officieux. Dit autrement, certaines « règles de droit » sont mises en application alors qu’elles n’auraient même pas suivi le processus légal de production du droit. Ainsi, le justiciable se verrait appliquer des textes de lois sans avoir eu la possibilité de les contester devant le juge car n’ayant pas été informé de leur existence ; l’État de droit se voit alors subir une entorse irréversible. En définitive, si le chef de l’État ne se soucie pas du respect de l’État de droit, c’est qu’il est convaincu que quoi qu’il arrive, le juge déclarera ses décisions conformes à la loi. Aux juges de la Cour suprême de nous prouver le contraire dans cette affaire en retournant au Président de la République cette décision honteuse.
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