pátek 14. května 2010

Odťahovanie motorových vozidiel - "vzorová" argumentácia ÚS SR


V Českej republike sú rozhodnutia najvyšších súdov a ústavného súdu často podrobované kritike, odborná verejnosť o nich diskutuje. Na Slovensku sa s takýmto prístupom stretávame podstatne zriedkavejšie. Navyše z českej strany (viackrát napríklad od kolegov z Jiného práva) sa dostalo slovenskej judikatúre pochvaly. Nezainteresovaní čitatelia tak mohli nadobudnúť dojem, že slovenské súdnictvo funguje kvalitne a jeho rozhodnutia sú inšpiratívne. Toto džentlmenstvo zo strany našich západných susedov si samozrejme veľmi vážime a sme zaňho vďační.

O to viac, keďže v skutočnosti neexistujú dôvody, prečo by sme mali slovenskú judikatúru glorifikovať. Niežeby som bol veľkým znalcom našej a prípadne aj českej judikatúry. Máme tu však mnoho prípadov rozhodnutí súdov, ktoré sú až dych vyrážajúce. V poslednom čase napríklad niektoré nálezy Ústavného súdu SR. Nezaoberajme sa politickými kauzami. Skvelou ukážkou "argumentačnej vyspelosti a presvedčivosti" súdneho rozhodnutia je trochu starší nález ÚS SR vo veci sťažnosti A., spol. s r. o. (sp. zn. III. ÚS 300/07-30) týkajúcej sa odťahovania motorových vozidiel z dôvodu, že sú prekážkou v cestnej premávke. Pre tých, ktorým sa nechce čítať celý nález, prikladám výňatok (ktorý som troška poeditoval a spoznámkoval).

PS. Význam tej anonymizácie som zatiaľ nepochopil (napr. na začiatku nálezu je meno právneho zástupcu uvedené len iniciálmi, na konci je celé meno).



Sťažovateľ sa sťažnosťou domáhal vyslovenia porušenia práva podľa čl. 6 ods. 1 dohovoru, podľa ktorého každý má právo na to, aby jeho záležitosť bola spravodlivo verejne a v primeranej lehote prejednaná nezávislým a nestranným súdom zriadeným zákonom, ktorý rozhodne o jeho občianskych právach alebo záväzkoch alebo o oprávnenosti akéhokoľvek trestného obvinenia proti nemu.

Článok 6 ods. 1 dohovoru každému zaručuje právo podať žalobu na uplatnenie svojich občianskych práv a záväzkov na súd. Takto interpretovaný článok zahŕňa právo na súd, do ktorého patrí právo na prístup k súdu. K nemu sa pridávajú záruky ustanovené čl. 6 ods. 1 dohovoru, pokiaľ ide o organizáciu a zloženie súdu a vedenie konania. To všetko v súhrne zakladá právo na spravodlivé prejednanie veci (rozhodnutie Európskeho súdu pre ľudské práva z 21. februára 1975, séria A č. 18, s. 18, § 36). Právo na spravodlivé prejednanie veci zahŕňa v sebe princíp rovnosti zbraní, princíp kontradiktórnosti konania, právo byť prítomný na pojednávaní, právo na odôvodnenie súdneho rozhodnutia a iné požiadavky spravodlivého procesu.

Článok 1 dohovoru zaväzuje zmluvné strany (aj Slovenskú republiku) priznať každému, kto podlieha ich jurisdikcii, práva a slobody uvedené v Hlave I dohovoru. Slovenská republika prevzala tento záväzok a ústavný súd umožňuje, aby sa sťažovatelia dožadovali priamo plnenia záväzkov vyplývajúcich z dohovoru. Právny poriadok Slovenskej republiky umožňuje, aby sa sťažovatelia domáhali priamo aplikácie medzinárodnej zmluvy. Táto povinnosť vyplýva z prezumpcie súladnosti vnútroštátneho právneho poriadku.

Podľa § 135 ods. 1 Občianskeho súdneho poriadku súd je viazaný rozhodnutím ústavného súdu o tom, či určitý právny predpis je v rozpore s ústavou, so zákonom alebo s medzinárodnou zmluvou, ktorou je Slovenská republika viazaná. Súd je tiež viazaný rozhodnutím ústavného súdu alebo Európskeho súdu pre ľudské práva, ktoré sa týkajú základných ľudských práv a slobôd.

Podľa § 2 ods. 3 druhej vety zákona č. 385/2000 Z. z. o sudcoch a prísediacich a o zmene a doplnení niektorých zákonov v znení neskorších predpisov právny názor ústavného súdu obsiahnutý v jeho rozhodnutí vydanom v konaní podľa čl. 125 ods. 1 ústavy na základe návrhu súdu je pre súd záväzný.

Podľa § 40 ods. 1 zákona Národnej rady Slovenskej republiky č. 315/1996 Z. z. o premávke na pozemných komunikáciách v znení platnom v čase odtiahnutia motorového vozidla (ďalej len „zákon č. 315/1996 Z. z.“) kto spôsobil prekážku cestnej premávky, je povinný ju bezodkladne odstrániť. Ak to neurobí, odstráni ju na jeho náklady správca cesty.

Podľa § 40 ods. 4 citovaného zákona správca cesty môže odstrániť vozidlo, ktoré je ponechané na ceste vrátane chodníka, na náklady jeho prevádzkovateľa, ak je
a) ponechané na mieste, kde je zastavenie alebo státie zakázané,
b) ponechané na parkovisku vyhradenom pre vozidlá uvedené v § 41 ods. 1 písm. a) a nemá príslušné označenie,
c) bez pripevnenej tabuľky s evidenčným číslom a ak podlieha evidenčnej povinnosti alebo je bez čitateľného vyznačenia mena, priezviska a trvalého pobytu, alebo bez názvu a sídla držiteľa na viditeľnom mieste na jeho pravej strane s výnimkou dvojkolesových vozidiel, aj keď netvorí prekážku cestnej premávky.

Podľa § 40 ods. 5 citovaného zákona ak vozidlo tvorí prekážku cestnej premávky alebo ak ide o vozidlo uvedené v odseku 4, môže o jeho odstránení rozhodnúť aj policajt. Také vozidlo správca cesty odstráni na náklady jeho prevádzkovateľa.

Podľa § 3d ods. 5 písm. d) zákona č. 135/1961 Zb. o pozemných komunikáciách (cestný zákon) v znení platnom v čase odtiahnutia motorového vozidla (ďalej len „zákon č. 135/1961 Zb.“) správu pozemných komunikácií vykonávajú, ak ide o prejazdné úseky ciest vo vlastníctve obce, o miestne komunikácie a účelové komunikácie vo vlastníctve obce - obce, prípadne právnické osoby nimi na tento účel založené alebo zriadené.

Ústavný súd nálezom č. k. III. ÚS 2/01-29 zo 16. októbra 2001 rozhodoval o návrhu generálneho prokurátora Slovenskej republiky na začatie konania o súlade všeobecne záväzného nariadenia Mesta S. č. 4/99, ktorým sa upravuje státie, parkovanie a odťahovanie motorových vozidiel na území mesta S. s čl. 2 ods. 3, čl. 13 ods. 1, čl. 59 ods. 2 a s čl. 71 ods. 2 ústavy, s § 6 ods. 1 druhou vetou zákona Slovenskej národnej rady č. 369/1990 Zb. o obecnom zriadení v znení neskorších predpisov, s § 1 ods. 1 a s § 2 ods. 1, 3 a zákona Slovenskej národnej rady č. 544/1990 Zb. o miestnych poplatkoch v znení neskorších predpisov a s § 22 ods. 1 a s § 24 ods. 1 a 2 zákona č. 315/1996 Z. z. (v znení neskorších predpisov). V tomto náleze ústavný súd riešil okrem iných aj otázku odťahovania motorových vozidiel podnikateľským subjektom. V odôvodnení tohto nálezu ústavného súdu sa uvádza: „Keďže generálny prokurátor vo svojom návrhu neuviedol, ktoré konkrétne ustanovenia VZN nie sú v súlade s ktorými ním vymenovanými ustanoveniami ústavy a zákonov, skúmal ústavný súd ústavnosť a zákonnosť všetkých ustanovení VZN jednotlivo aj vo vzájomnej súvislosti, ale iba vzhľadom na ustanovenia ústavy a zákonov uvedené v návrhu. (...) Článok 26 VZN umožňuje Mestu S. zabezpečiť odtiahnutie vozidla prostredníctvom podnikateľského subjektu. Nie je v rozpore s ustanoveniami právnych predpisov uvádzanými v návrhu.“ (Zatiaľ som nepochopil, ako ÚS SR dospel k záveru, že tento judikát z roku 2001 je aplikovateľný na posudzovaný prípad; podľa mňa ide o vytrhnutie vety z kontextu, keďže je zrejmé, v rozhodnutí z roku 2001 ÚS SR neposudzoval zákonnosť čl. 26 uvedeného VZN v relácii k § 3d ods. 5 písm. d) zákona č. 135/1961 Zb. o pozemných komunikáciách (cestný zákon) - DK).

V odôvodnení rozsudku krajského súdu č. k. 8 Co 486/05-69 z 27. marca 2007 sa uvádza: „(...) Pre posúdenie veci bolo právne významné, či navrhovateľom uskutočnené odtiahnutie vozidla odporcu bolo možné považovať za odtiahnutie, ktoré vykonala obec (§ 40 ods. 1 a 4 zák. č. 315/1996 Z. z. o premávke na pozemných komunikáciách v spojení s § 3d ods. 4 písm. b) zákona č. 135/1961 Zb. o pozemných komunikáciách).

V prejednávanej veci je zrejmé, že navrhovateľ nie je právnickou osobou obcou (Hlavným mestom SR Bratislava) pre tento účel založená alebo zriadená, a preto odstránenie vozidla bez súhlasu jeho prevádzkovateľa je vážnym zásahom do vlastníckych práv, ktorý zásah je prípustný len na základe zákona. Pretože právne normy v ust. zákona č. 315/1996 Z. z. o premávke na pozemných komunikáciách upravujú spoločenské vzťahy v oblasti verejného (správneho) práva, nevznikajú v súvislosti so správou týchto komunikácií súkromnoprávne, ale verejnoprávne vzťahy. Odstránenie vozidla preto nie je súkromnoprávnym aktom, pri ktorom by prichádzalo do úvahy zastúpenie podnikateľským subjektom, alebo zmluvné poverenie, v zmysle ktorého by bol podnikateľský subjekt oprávnený pôsobiť v oblasti verejnoprávnych vzťahov. Správca cesty pri odstraňovaní vozidla vystupuje ako orgán verejnej moci (správy), ktorý nesie v plnom rozsahu zodpovednosť za jej výkon a nemôže ju zmluvne previesť na iného, a to ani po stránke technickej (čo sa týka samotného výkonu odtiahnutia vozidla). Takéto oprávnenie, vzhľadom na povahu vzťahu, v rámci ktorého má k nemu dôjsť, je oprávnená vykonať buď len obec sama alebo právnická osoba ňou pre tento účel založená alebo zriadená.

Vozidlo odporcu v danom prípade nebolo odtiahnuté správcom komunikácie ani subjektom, ktorý bol výlučne na tento zásah do práv odporcu oprávnený v zmysle § 40 ods. 1 a 4 zákona č. 315/1996 Z. z. o premávke na pozemných komunikáciách v spojení s § 3d ods. 4 písm. b) zákona č. 135/1961 Zb. o pozemných komunikáciách. Zmluvu „o výkone odťahovej služby“ zo dňa 24.6.1997 je preto potrebné považovať za právny úkon neplatný (§ 39 Obč. zák.), lebo správca komunikácie ňou v rozpore so zákonom previedol na navrhovateľa ako podnikateľský subjekt časť právomoci verejnej správy. Plnenie z neplatného právneho úkonu by znamenalo bezdôvodné obohatenie (§ 451 Obč. zák.), ktoré sa musí vydať. Navrhovateľ na základe neplatného právneho úkonu nemôže sa voči odporcovi úspešne domáhať náhrady nákladov súvisiacich s odstránením jeho vozidla a jeho zabezpečením až po jeho výdaj prevádzkovateľovi.“ (Myslím, že táto argumentácia je úplne správna - DK)

Ústavný súd vo svojich rozhodnutiach mnohokrát zdôraznil, že nie je oprávnený preskúmavať a posudzovať právne názory všeobecného súdu, ktoré ho pri výklade a uplatňovaní zákonov viedli k rozhodnutiu. Takýto postoj ústavného súdu vyplýva z čl. 141 a čl. 142 ústavy.

Skutkové a právne závery všeobecného súdu by mohli byť predmetom kontroly zo strany ústavného súdu vtedy, ak by vyvodené závery všeobecného súdu boli zjavne neodôvodnené alebo arbitrárne, a tak z ústavného hľadiska neospravedlniteľné a neudržateľné, a zároveň by mali za následok porušenie základného práva alebo slobody (obdobne I. ÚS 13/00, III. ÚS 151/05, III. ÚS 344/06). Takýto postoj ústavného súdu má základ v jeho právomociach odvodených z čl. 124 ústavy.

Závery krajského súdu napadnuté sťažnosťou sú podľa názoru ústavného súdu arbitrárne, a tým aj ústavne neudržateľné.

Krajský súd v napadnutom rozhodnutí vyložil § 40 ods. 1 a 4 zákona č. 315/1996 Z. z., ako aj § 3d ods. 5 písm. d) [mylne uvádza § 3d ods. 4 písm. b), ktoré nie je súčasťou právneho poriadku] zákona č. 135/1961 Zb. a s týmto výkladom spája podľa § 39 Občianskeho zákonníka neplatnosť zmluvy o výkone odťahovej služby.

Z oboch právnych úprav vyplýva, kto je správcom cesty, aké sú jeho právomoci, ako aj to, čo tvorí prekážku cestnej premávky (ide o časti, ktoré krajský súd cituje v rozhodnutí).

Z oboch právnych úprav nevyplýva expressis verbis záver, že by správca komunikácie nemohol takúto zmluvu uzavrieť. (Akože nevyplýva? Veď jasnejšie to už nemôže byť... - DK). Tvrdenie krajského súdu v napadnutom rozhodnutí tak bez ďalšieho nemá reálny logický základ, ktorý by mohol byť spájaný s následkami tam uvedenými, a to vyhlásením zmluvy o výkone odťahovej služby za neplatnú. (Jasne chybný záver, k tomu niet čo dodať. ÚS oprel svoju argumentáciu len o predchádzajúce rozhodnutie ÚS, ktoré sa však k tejto otázke nevyjadrilo - nebola v ňom preskúmaná zákonnosť uvedeného článku VZN v relácii k § 3d ods. 5 písm. d) zákona č. 135/1961 Zb. o pozemných komunikáciách (cestný zákon) - DK).

Rozhodnutie krajského súdu v tejto časti nie je náležite zdôvodnené (už aj tým, že sa odvoláva na neexistujúce ustanovenie zákona), a tým nespĺňa ani požiadavky kladené na spravodlivý súdny proces.

Na tomto mieste je potrebné pripomenúť rozhodnutie ústavného súdu sp. zn. III. ÚS 2/01 zo 16. októbra 2001 v spojení s § 135 ods. 1 Občianskeho súdneho poriadku.

Sťažovateľ namietal porušenie svojho práva na spravodlivé súdne konanie podľa čl. 6 ods. 1 dohovoru.

Jednou zo záruk spravodlivého súdneho rozhodnutia je aj právo na jeho odôvodnenie.

Nutnosť odôvodniť súdne rozhodnutie je daná tiež vo verejnom záujme, lebo je jednou zo záruk, že výkon spravodlivosti nie je arbitrárny, neprehľadný, a že rozhodovanie súdov je kontrolované verejnosťou.

Európsky súd pre ľudské práva vo veciach Ruiz Torijo v. Španielsko z 9. apríla 1994, (Ac 303-A, § 29), Georgiadis v. Grécko z 29. mája 1997 a iných uviedol, že čl. 6 ods. 1 dohovoru zaväzuje súdy odôvodniť svoje rozhodnutia. Tento príkaz nemožno chápať tak, že vyžaduje, aby na každý argument dal súd podrobnú odpoveď. Rozsah tejto povinnosti sa môže meniť podľa povahy rozhodnutia. Okrem toho je potrebné vziať do úvahy rôznorodosť prostriedkov, ktoré môže strana uplatňovať pred súdom, a tiež rozdiely v zákonoch, obyčajoch, názoroch teórie a vo forme vyhotovení rozhodnutí a rozsudkov. Preto otázku, či súd splnil svoju povinnosť odôvodniť rozhodnutie vyplývajúcu z čl. 6 dohovoru, možno posúdiť len so zreteľom na okolnosti daného prípadu.

Ústavný súd skúmal rozhodnutie krajského súdu aj z hľadiska týchto kritérií, pričom zistil, že tvrdenia obsiahnuté v odôvodnení rozhodnutia krajského súdu nemajú opodstatnenie v § 40 ods. 1 a 4 zákona č. 315/1996 Z. z. a v § 3d ods. 5 písm. d) zákona č. 135/1961 Zb.

Takýto postup krajského súdu zakladá arbitrárnosť.

Nad rámec uvedeného neušlo pozornosti ústavného súdu, že krajský súd cituje ustanovenie § 3d ods. 4 písm. b) zákona č. 135/1961 Zb., ktorý takéto ustanovenie ani neobsahuje [správne asi § 3d ods. 5 písm. d) citovaného zákona].

Ústavný súd dospel k záveru, že rozsudkom krajského súdu v konaní č. k. 8 Co 486/05-69 z 27. marca 2007 bolo porušené právo sťažovateľa na spravodlivé súdne konanie podľa čl. 6 ods. 1 dohovoru (bod 1 výroku nálezu).

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