irakli buTbaia Temis xelZRvaneli: Tsu-s asocirebuli...

samagistro naSromi

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A

samagistro naSromi

administraciuli organos pasuxismgeblobis

samarTlebrivi regulireba saqarTveloSi

(saqarTvelos zogadi administraciuli kodeqsisa da

saqarTvelos samoqalaqo kodeqsis normebis gamijvna

da maTi gamoyenebis farglebi)

irakli buTbaia

Temis xelZRvaneli: Tsu-s asocirebuli

profesori – paata turava

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sarCevi

I. Sesavali ....................................................................................................................................... 4

II. administraciuli organos pasuxismgeblobis arsi da miznebi ............................ 6

1. administraciuli organos pasuxismgeblobis warmoSoba ..................................... 8

2. administraciuli organos pasuxismgeblobis miznebi .......................................... 10

III. administraciuli organos pasuxismgeblobis samarTlebrivi safuZvlebi .. 11

1.Aadministraciuli organos mier miyenebuli zianisaTvis anazRaurebis

miRebis ufleba, rogorc adamianis ZiriTadi, konstituciuri ufleba ............... 12

2. administraciuli organos pasuxismgeblobis samoqalaqo- samarTlebrivi

regulireba ....................................................................................................................................... 14

2.1. ssk-is 997-e da ssk-is 1005-e muxlebs Soris mimarTeba .......................................... 14

2.2. ssk-is 997-e muxlis moqmedebis farglebi............................................................... 14

2.2.1. marTlsawinaaRmdego qmedeba ........................................................................................ 17

2.2.2. samsaxurebrivi uflebamosileba ............................................................................. 18

2.2.3. bralis formebi .................................................................................................................. 20

2.3. ssk-is 1005-e muxlis moqmedebis sfero .................................................................... 21

2.3.1. samsaxurebrivi movaleobis cneba .............................................................................. 21

2.3.2. samsaxurebrivi movaleobis farglebi ..................................................................... 22

2.3.3. bralis formebi ssk-is 1005-e muxlis mixedviT ............................................... 22

2.3.4. winaaRmdegoba ssk-is 1005-e muxlis 1-li nawilis I da II winadadebebs

Soris ................................................................................................................................................... 24

2.3.5. ziani mesame pirTa mimarT .............................................................................................. 24

2.4. pasuxismgeblobis farglebi samoqalaqo kodeqsis mixedviT ........................ 25

3. administraciuli organos pasuxismgebloba zogadi administraciuli

kodeqsis mixedviT .......................................................................................................................... 25

3.1. pasuxismgeblobis safuZveli ............................................................................................. 26

3.1.1. brali szak-is 208-e muxlis mixedviT .......................................................................... 26

3.1.2. samsaxurebrivi movaleoba ................................................................................................ 29

3.2. szak-is 208-e muxlis moqmedebis sfero ........................................................................ 30

IV. administraciuli organos pasuxismgeblobis dualisturi mowesrigebis

mizani da samarTlebrivi Sedegebi ........................................................................................ 31

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1. kolizia Tu mizanmimarTuli mowesrigeba?! ............................................................... 31

2. mowesrigebis miznebi da mizanSewoniloba ................................................................ 32

3. dualisturi mowesrigebis samarTlebrivi Sedegebi ............................................. 33

V. dagegmili sakanonmdeblo cvlilebebi .......................................................................... 34

1. administraciuli organos pasuxismgeblobis axleburi mowesrigeba .......... 34

1.1. samsaxurebrivi valdebulebebis braleuli darRveva ...................................... 35

1.1.1. bralis formebi ................................................................................................................... 36

1.2. pasuxismgebloba bralis gareSe damdgari zianisaTvis .................................. 36

1.2.1. sajaro samarTlebrivi uflebamosilebis ................................................................ 37

Gganxorcieleba ............................................................................................................................... 37

1.2.2. qonebrivi an araqonebrivi uflebebis xelyofa ..................................................... 37

2. cvlilebebis mizanSewoniloba ......................................................................................... 38

VI.Ddaskvna .......................................................................................................................................... 39

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I. Sesavali

administraciuli organos pasuxismgeblobis sakiTxi aris saxelmwifos pasuxismgeblobis gacilebiT farTo institutis erT-erTi Semadgeneli komponenti. administraciuli organos pasuxismgebloba misi moxeleebis mier miyenebuli zianisaTvis metad aqtualuri da saintereso sakiTxia nebismieri qveynis kanonmdeblobaSi. sakiTxis sirTules ganapirobebs is, rom advili SesaZlebelia saxelmwifo gakotrdes, Tu mas daekisreba misi kanonmdeblobis, marTlmsajulebisa Tu administraciis mier kerZo pirebisaTvis miyenebuli yvela faqtobrivi zianis anazRaureba. saTanado saxsrebis gareSe ki saxelmwifo moklebuli iqneba Tavisi ZiriTadi sajaro funqciebis ganxorcielebis SesaZleblobas. meore mxriv, Tuki mas ar daekisreba miyenebuli zianis anazRaurebis valdebuleba, es gamoiwvevs samarTlis gareT saxelmwifos dayenebas, rac SeiZleba sajaro Zalmomreobad da tiraniad gadaiqces. aq saubaria erTi mxriv, saxelmwifos qmedunarianobis SenarCunebaze, xolo meores mxriv, adamianis uflebebis garantiebis Seqmnasa da saxelmwifos xalxis winaSe angariSvaldebulebis principis damkvidrebaze. 1 swored es instituti ganapirobebs da mniSvnelovnad gansazRvravs imas, rom aravin gaxdes administraciuli organos TviTnebobis msxverpli da yvelasTvis iyos garantirebuli administraciuli organos mier miyenebuli zianis anazRaureba. administraciuli organos pasuxismgeblobis instituts arsebobis xangrZlivi istoria gaaCnia da adamianis rolis win wamowevas da adamianis uflebebis Casaxvas ukavSirdeba. es istoriuli ganviTareba, Sesabamis literaturaSi, xatovnad gamoTqmulia Semdegi fraziT: “mefe aRar aris uflebamosili gaakeTos yvelaferi, rac mas surs.” 2 aRniSnuli sakiTxi miT ufro aqtualuria saqarTveloSi, ramdenadac am institutis momwesrigebeli normebi sxvadasxva sakanonmdeblo aqtebSia gabneuli da aqedan gamomdinare mTeli rigi gaugebrobebis mizezad gvevlineba Teoriasa Tu praqtikaSi. saqarTveloSi sakiTxis aqtualobis calsaxa dasturia isic, rom mzaddeba sakanonmdelo cvlilebebi aRniSnuli sakiTxis axleburi regulirebis mizniT. naSromSi ganxiluli iqneba ara administraciuli organos pasuxismgeblobis instituti zogadad, aramed ZiriTadi aqcenti gakeTdeba saqarTveloSi aRniSnuli institutis momwesrigebeli samarTlebrivi normebis urTierTmimarTebasa da maTi gamoyenebis gzebze.

1 z. adeiSvili, g. vinteri, d. qitoSvili `saqarTvelos zogadi administraciuli kodeqsis komentari” Tbilisi, 2002w, gv. 360. 2 Duncan Fairgrieve, ``State liability, a comperative law study”, Oxford University Press, 2003, p. 10.

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administraciuli organos pasuxismgeblobis instituti damkvidrebulia qveynis damfuZnebeli aqtiT, konstituciiT, aseve saqarTvelos zogadi administraciuli kodeqsiT (SemdgomSi – szak). Tumca aRniSnuli institutis maregulirebel normebs Seicavs saqarTvelos samoqalaqo kodeqsic (SemdgomSi – ssk). aRniSnuli dualisturi mowesrigebis da imis gamo, rom administraciuli organos pasuxismgeblobis erT-erT aucilebel elementad miiCneva brali da is garemoeba, rom bralis gareSe pasuxsimgebloba dgeba mxolod gamonaklis SemTxvevebSi 3 (Tumca aseTi daTqma ar gamomdinareobs Tavad kanonmdeblobidan), bevri Teoritikosi da aseve praqtikosi iuristis mier szak-isa da ssk-is aRniSnuli institutis momwesrigebeli muxlebi ganixileba koliziur normebad. amis safuZvlad miTiTebulia is, rom administraciuli organos pasuxismgeblobis sakiTxi gansxvavebulad regulirdeba szak-isa da ssk-is mier, radganac erT SemTxvevaSi (szak) saubaria administraciuli organos pasuxismgeblobaze bralis miuxedavad, xolo meore SemTxvevaSi (ssk) ki pasuxismgebloba dgeba ganzraxvis an uxeSi gaufrTxileblobisaTvis. problematuria isic, rom aracalsaxa da orazrovania aRniSnuli institutis Tavad samoqalaqo-samarTlebrivi regulireba. am problemam ganapiroba is, rom ukve SemuSavebulia axali zogadi administraciuli kodeqsis proeqti, romelSic administraciuli organos pasuxismgeblobis Tavi arsebiTad axleburad mowesrigda, rogorc wminda sistematizaciis, aseve Sinaarsobrivi TvalsazrisiT. kerZod ki, rac yvelaze mniSvnelovania, axali proeqti administraciuli organos pasuxismgeblobis instituts samoqalaqo kodeqsisagan damoukideblad awesrigebs, maSin, roca moqmedi szak-i Seicavs daTqmas samoqalaqo kodeqsis gamoyenebis Taobaze. proeqtis mixedviT mcirdeba da izRudeba is SemTxvevebi, roca administraciulma organom unda aanazRauros ziani misi moxelis mier miyenebuli zianisaTvis, axleburad regulirdeba pasuxismgeblobis safuZvlebi, bralis sakiTxi, ris gamoc administraciuli organos pasuxismgebloba Semcirebulia arsebul mowesrigebasTan SedarebiT. naSromis mizania daamtkicos, rom administraciuli organos pasuxismgeblobis institutis arsebuli dualisturi (administraciul-samarTlebrivi da samoqalaqo-samarTlebrivi) mowesrigeba ara kolizia, aramed kanonmdeblis mizanmimarTuli gadawyvetaa. naSromSi aseve ganxilulia administraciuli organos pasuxismgeblobis institutis arsebuli mowesrigebis mniSvneloba da xarvezebi. amavdroulad, naSromSi aRniSnuli institutis arsebuli mowesrigeba

3 z. adeiSvili, q. vardiaSvili, l. izoria, n. kalandaZe, m. kopaleiSvili, n. sxirtlaZe, p. turava, d. qitoSvili `zogadi administraciuli samarTlis saxelmZRvanelo”, Tbilisi, 2005w, gv. 334.

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Sedarebuli iqneba saqarTveloSi dagegmil sakanonmdelo cvlilebebTan. am mizniT ganxiluli da argumentirebuli iqneba Tu ra mizans isaxavda kanonmdebeli arsebuli mowesrigebiT da ramdenad gamarTlebulia msgavsi midgoma. naSromze muSaobisas ZiriTadad gamoyenebuli iqneba teleologiuri, analitikuri da SedarebiT-samarTlebrivi meTodebi, aseve garkveulwilad istoriuli meTodis elementebi. naSromi Sedgeba eqvsi Tavisagan: I Tavi – Sesavali. igi exeba sakvlevi Temis aqtualobas, dasaxul mizans, miznis misaRwevad SerCeul da kvlevaSi gamoyenebul meTodebs; II Tavi – administraciuli organos pasuxismgeblobis institutis arsi da miznebi; III Tavi – administraciuli organos pasuxismgeblobis samarTlebrivi safuZvlebi; IV Tavi – administraciuli organos pasuxismgeblobis institutis dualisturi mowesrigebis miznebi da samarTlebrivi Sedegebi; V Tavi – dagegmili sakanonmdeblo cvlilebebi; VI Tavi – daskvna, romelic moicavs kvlevis Sedegebsa da Semajamebel Teziss.

II. administraciuli organos pasuxismgeblobis arsi da

miznebi

administraciuli organos pasuxismgeblobis sakiTxs sanam ganvixilavdeT, Cven unda davusvaT kiTxva Cvens Tavs, Tu rogori mmarTveloba gvsurs. 4 aqedan gamomdinareobs Teza, rom saxelmwifos pasuxismgeblobis roli da statusi, sxva faqtorebTan erTad, damokidebulia TiToeuli qveynis mmarTvelobis formaze da demokratiis, saxelmwifo organoebis angariSvaldebulebis xarisxze. gulubryviloba iqneboda Cveni mxridan ubralo damTxvevad migveCnia is faqti, rom mag: amerikis SeerTebul StatebSi, sadac aRmasrulebeli xelisufleba Zalzed Zlieria, saxelmwifos pasuxismgeblobis gacilebiT susti institutia, maSin, roca igive safrangeTSi, sadac suverenitetis ZiriTadi matarebeli parlamentia da erTgvar zedamxedvelad gvevlineba xelisuflebis danarCen Stoebze, adamiani ukeT aris daculi saxelmwifos TviTnebobisagan. ra Tqma unda, amis mizezi amerikuli federalizmis Taviseburebebicaa, Tumca dauSvebelia mmarTvelobis formis uaryofa, rogorc erT-erTi umniSvnelovanesi faqtorisa.

4 Peter H. Schuck ``Suing government, citizen remedies for official wrongs”, Yale University Press, 1983, p. 1

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saxelmwifos pasuxismgeblobis sakiTxi erT-erTi umniSvnelovanesi da problematuri sakiTxia mravali qveynis, maT Soris qarTul samarTalSi. sakiTxi imdenad rTuli da kompleqsuria, rom xSirad daoben imazec Tu aRniSnuli instituti konstituciuri samarTlis regulirebis sferoSi unda eqceodes Tu administraciulis, 5 vinaidan rig SemTxvevebSi, saxelmwifos pasuxismgeblobis mniSvnelobidan gamomdinare, damfuZnebeli krebis mier SesaZloa aRiarebul iqnas am principis fundamentaluri mniSvneloba da mas konstituciuri statusi mieniWos. Tumca, aqve unda aRiniSnos, rom arsobrivad nakleb mniSvnelovania am principis konstituciuri statusi, vinaidan, Sesabamisi saxelmwifo politikis arsebobis pirobebSi, administraciuli samarTali aranakleb mZlavri meqanizmia saxelmwifo manqanisagan pirovnebis dasacavad. ufro metic, SeiZleba vTqvaT, rom konstituciur samarTals, Tavisi zogadi bunebidan gamomdinare, nakleb ZaluZs im fundamenturi miznis miRweva, rasac saxelmwifo organos pasuxismgebloba unda emsaxurebodes, kerZod ki, moqalaqeTa uflebebis dacva yoveldRiurobaSi saxelmwifo moxeleTa TviTnebobisa Tu arakvalificiurobisagan. aRniSnulidan gamomdinare problematuria administraciuli organos pasuxismgeblobis sakiTxic. sakiTxis sirTules ganapirobebs is, rom erTmaneTs upirispirdeba erTi mxriv saxelmwifos finansuri interesi, misi qmedunarianobis SenarCunebis principi da meores mxriv moqalaqis uflebebis dacvis uzrunvelyofis principi. 6 saxelmwifos yvela qmedeba ideaSi mimarTulia zogadsazogadoebrivi keTildReobisaken da rodesac aseTi qmedebis dros sazogadoebis erT, calkeul individs Tanasworobis principis sapirispirod adgeba ziani, ar SeiZleba mas TviTon daawves am sajarosamarTlebrivi qmedebis Sedegad damdgari zianis simZime. aRniSnuli ziani unda aanazRauros Tavad sazogadoebam da Tanabrad gadainawilos tvirTi, 7 es ki SesaZlebelia maSin, roca pasuxismgeblobas iRebs Tavad saxelmwifo, ramdenadac am SemTxvevaSi, cxadia, ziani anazRaurdeba biujetidan, biujeti ki sxva araferia Tu ara sazogadoebis mier gadaxdili gadasaxadeb,i 8 anu saxalmwifos pasuxismgeblobis principi sxva araferia Tu ara pasuxismgeblobis tvirTis mTels sazogadoebaze gadanawileba. saukuneTa manZilze, gansakuTrebiT saerTo samarTlis qveynebSi, damkvidrebuli iyo da dResac arsebobs midgoma, rom saxelmwifos mier miyenebuli zianis anazRaurebis odenoba damokidebulia miyenebuli

5 ix. sqolio # 2, gv. 5. 6 p. turava, i. xarSilaZe `administraciuli warmoeba”, Tbilisi, 2006 w, gv. 178

7 Robert R. Peebles, Jr, Governmental tort liability in Louisiana: a response to Profesor Robertson and a call for

more study, Tulane Law Review, May, 1991 (Citation Text: 65 TLNLR 1055). 8 iqve.

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zianis odenobaze da Tu aRniSnuli odenoba Zalzed didia, maSin saxelmwifo politika dauSveblad miiCnevs zianis sruli odenobiT anazRaurebas da miuTiTeben im argumentze, rom saxelmwifos qisis amgvari gankargva sazogadoebis yvela wevrisaTvis uaryofiTi Sedegis momtania da sazogadoebaSi individs aqvs garkveuli Tmenis valdebuleba. 9 Tumca, aqve unda davZinoT, rom mas Semdeg, rac me-20 saukunis me-2 naxevridan, warsul gamocdilebaze dayrdnobiT, adamianis Rirsebam gansakuTrebuli roli daimkvidra umetes samarTlebriv sistemaSi, zemoaRniSnuli midgoma uaryofili iqna kontinentur evropaSi da damkvidrda Sexeduleba, rom saxelmwifo, rogorc iZulebis meqanizmiT aRWurvili organo, valdebulia daicvas Tavisi moqalaqeebi saxelmwifo moxeleTa arajerovani qmedebebisagan. finansuri meqanizmebi unda iyos prevenciuli xasiaTis da unda emsaxurebodes imave qmedebis momavalSi Tavidan acilebas. aRniSnul midgomas safuZvlad udevs e.w. `Tanasworobis principi”, romlis Tanaxmadac, sazogadoebrivad sasargeblo qmedeba, romelsac axorcilebs saxelmwifo ar unda ayenebdes gaumarTlebel zians am sazogadoebis calkeul wevrebs. ufro metic, garda calkeuli danaSaulebisa, Tu konkretuli individi zians ganicdis saxelmwifos mier sajaro uflebamosilebis farglebSi ganxorcielebuli qmedebis Sedegad, ar SeiZleba dazaralebulma sazogadoebis sasargeblod mxolod TviTon itvirTos am qmedebis mavne Sedegebi, Tundac damgari ziani gamowveuli iyos arabraleuli qmedebiT. 10 swored aRniSnuli mosazreba udevs safuZvlad saxelmwifo pasuxismgeblobis instituts. Tavad es mosazreba ki aRiarebuli Sexedulebis mixedviT safuZvels iRebs 1789 wlis 26 agvistos adamianis uflebaTa deklaraciis me-13 muxlidan, romlis mixedviTac aRiarebul iqna gadasaxadebis samarTlianad gadanawilebis principi.11

1. administraciuli organos pasuxismgeblobis warmoSoba

administraciuli organos pasuxismgeblobis institutis istorias ramdenime etapad yofen – adreuli periodidan Tanamedrove epoqamde.12 adreuli periodi iwyeba me-18 saukunis bolodan. es is periodia, roca zogadad Caisaxa administraciuli organos pasuxismgeblobis instituti. amasTanave aRsaniSnavia isic, rom am droisaTvis

9 iqve.

10 ix. sqolio #7.

11 ix. sqolio #2, gv. 137.

12 iqve, gv. 7.

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administraciuli samarTali ar iyo ganviTarebuli da ar arsebobda administraciuli organoebis iseTi mwyobri sistema, rogorc Tanamedrove epoqaSi da erTaderTi saxelmwifoebrivi instituti, romelic mTels saxelmwifos warmoadgenda iyo mefe, monarqi. amdenad, am institutis Casaxva-ganviTarebac monarqiis institutis fonze mimdinareobda. saxelmwifos (monarqis) absoluturi imuniteti am droisaTvis eyrdnoboda maqsimas – `mefe arasodes moqmebs arasworad anu igive, mefe yovelTvis marTalia (sworia).13 saxelmwifos pasuxismgeblobis ideis Casaxva safrangeTis me-18 saukunis burJuaziul-demokratiul revolucias da ganmanaTlebelTa ideebs ukavSirdeba. 14 am procesSi aRsaniSnavia saxelmwifo sabWos (Conseil d'Etat) is umniSvnelovanesi roli, romelic man iTamaSa aRniSnuli institutis ganviTarebaSi.15 saxelmwifos pasuxismgeblobis SemoRebasa da e.w. `suverenis imuniteti”-s uaryofaSi didi wvlili miuZRvis im procesebs, romlebic safrangeTSi saxelmwifo sabWos rolis ganmtkicebas ukavSirdeba. saxelmwifo sabWo (romlis SemadgenlobaSic mefe da misi ministrebi Sediodnen) Tavdapirvelad administraciul organos warmoadgenda, romelic im droisaTvis warmoadgenda kolegiuri administraciuli organos Canasaxs da misi gadawyvetilebebic mxolod administraciuli aqtebi iyo. SemdgomSi, saxelmwifo sabWo TandaTan gardaiqmna umaRlesi instanciis administraciul sasamarTlod. miiCneoda, rom saxelmwifo moxeleTa mier miyenebuli zianis anazRaurebis sakiTxi ar SeiZleboda ganexila Cveulebriv sasamarTlos, ramdenadac safrangeTSi Zalian xisti da mkacri iyo xelisuflebis danawilebis principi da igi ar iZleoda SesaZleblobas, rom sasamarTlos kontroli gaewia aRmasrulebeli xelisuflebisaTvis da misTvis zianis anazRaureba daekisrebina.16 saxelmwifo sabWos administraciul sasamarTlod gardaqmnas mohyva is, rom mas rogorc specialur administraciuli iurisdiqciis sasmarTlos xelewifeboda saxelmwifo moxelisaTvis zianis anazRaurebis dakisreba. aRniSnuli ganpirobebuli iyo Semdegi mizezebiT: pirveli iyo is, rom saxelmwifo sabWo ar iyo SezRuduli saerTo sasamarTloebis iurisdiqciiT da meore, sajaro-samarTlebrivi uflebamosilebis ganxorcielebisas miyenebuli zianis anazRaurebis saqmeebi aRar ganixileboda samoqalaqo kodeqsis Sesabamisad, aramed

13 iqve, gv. 8. 14 iqve, gv. 12. 15 ix. sqolio #13. 16

ix. sqolio #7.

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sajaro samarTlis normebis safuZvelze. 17 saxelmwifo sabWos mosazrebiT, aRniSnuli sakiTxis mowesrigeba ver moxdeboda samoqalaqo samarTlis normebiT, im ubralo mizezis gamo, rom urTierToba saxelmwifos (administracias) da mis mosamsaxures Soris kerZo samarTlebrivi normebiT ki ara, sajaro samarTlebrivi normebiT regulirdeba.18 administraciuli organos pasuxismgeblobis institutis ganviTarebis istoriaSi mniSvnelovani adgili uWiravs e.w. `blankos saqmes” (1973w-is 8 Tebervali). aRniSnul saqmeSi sasamarTlom aRiara saxelmwifos pasuxsimgebloba misi moxelis mier miyenebuli zianisaTvis.19

2. administraciuli organos pasuxismgeblobis miznebi administraciuli organos pasuxismgeblobis institutis mizani iyo da aris postulati, romlis mixedviTac adamiani, individi ar SeiZleba iqces saxelmwos, misi organoebis `SiSvel obieqtad”.20 Tanamedrove msofliosa da civilizebuli, demokratiuli sazogadoebis umniSvnelovanes Rirebulebas warmoadgens adamiani da Sesabamisad garantirebuli unda iyos administraciuli organoebis mier calkeuli individisaTvis miyenebuli zianis anazRaureba. 21 unda gvaxsovdes rom erT mxares dgas saxelmwifo, Tavisi uzarmazari resursebiTa da aparatiT, xolo meore mxares erTi calkeuli individi, romelic Tavisi SesaZleblobebiT bevrad CamorCeba saxelmwifos. aqve aRsaniSnavia isic, rom yovel adamians unda hqondes gancda imisa, rom mis mier dafinansebuli saxelmwifo oraganoebi moqmedeben misi, rogorc sazogadoebis Semadgeneli individis, interesebis gaTvalisiwinebiT, xolo Tu am moqmedebis dros mas miadgeba ziani, es ziani aunazRaurdeba da is daucveli ar darCeba. 22 yovelive zemoaRniSnulis Segneba da gacnobiereba, xels uwyobs individTa mier iseTi Semxvedri nabijebis gadadgmas, rogoric aris

17

iqve. 18

ix. sqolio #2, gv. 10. 19

iqve, gv. 13. 20

ix. sqolio #4, gv. 11-15. 21

iqve, gv. 6. 22 iqve, gv. 26.

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gadasaxadebis keTilsindisierad gadaxda da Tavisi samoqalaqo valdebulebebis pirnaTlad Sesruleba. unda aRiniSnos isic, rom administraciuli organos pasuxismgeblobis intitutis ganviTareba sxvadasxva Teoriebis fonze mimdinareobda. ase magaliTad XIX saukunis dasavleT evropis qveynebSi gabatonebuli iyo e.w. `mandatis Teoria”. aRniSnuli Teoriis Tanaxmad, sajaro mosamsaxure mandatirebuli iyo mxolod kanonSesabamisi da ara marTlsawinaaRmdego qmedebisaTvis. igi valdebuli iyo emoqmeda miniWebuli mandatis sruli dacviT da Tu igi mas gascdeboda, maSin igi aRar moqmedebda, rogorc sajaro moxele, aramed rogorc kerZo individi, Sesabamisad misi qmedeba ganixileboda rogorc kerZo piris qmedeba da miyenebuli zianisaTvis bunebrivi iyo, rom pasuxismgebloba personalurad am sajaro moxeles ekisreboda. 23 cxadia aRniSnuli qmedeba mniSvnelovnad amcirebda administraciuli organos pasuxismgeblobis farglebs, magram bunebrivia, rom msgavsi midgoma mudmivad ver iarsebebda, miT umetes adamianis rolisa da efeqturi sajaro mmarTvelobis principis win wamowevis fonze. es Teoria XX saukunis dasawyisSi sabolood uaryofil iqna da Camoyalibda axali midgoma, romlis Tanaxmadac administraciuli organo pasuxismgeblobas kisrulobda misi moxelis Tundac uflebamosilebis darRveviT miyenebuli zianisaTvis. aRniSnul axal midgomas, Tavis mxriv, safuZvlad daedo Semdegi faqtorebi: erTis mxriv (rac pirovnebis rolis wamowevas ukavSirdeba), dazaralebul subieqts, rogorc kreditors saSualeba unda hqonoda administraciuli organos saxiT (romlis ukanac idga saxelmwifo Tavisi uzarmazari resursebiT da biujetiT) mieRo gadaxdisunariani kanonismieri movale. meores mxriv (rac efeqturi sajaro mmarTvelobis principidan gamomdinareobs) administraciul organos sakuTar Tavze unda aeRo Tavisi mosamsaxureebis SerCevisa da seleqciis riski da pasuxismgebeli yofiliyo maTi kanonSeusabamo qmedebisaTvis.24

III. administraciuli organos pasuxismgeblobis

samarTlebrivi safuZvlebi

23

d. ToraZe, saleqcio kursi – sazogadoebrivi marTlwesrigis samarTali, Tema sazogadoebrivi marTlwesrigis dacavi organoebis pasuxismgebloba. 24

ix. sqolio # 23.

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administraciuli organos pasuxismgeblobis institutis zogadi mimoxilvis Semdeg, mimovixilav uSualod qarTul sinamdviles. saqarTvelos ramdenime sakanonmdeblo aqti Seicavs administraciuli organos pasuxismgeblobis momwesrigebel normebs. maT Soris umniSvnelovanesia: (I) saqarTvelos konstitucia; (II) saqarTvelos samoqalaqo kodeqsi; (III) saqarTvelos zogadi administraciuli kodeqsi.

1.Aadministraciuli organos mier miyenebuli zianisaTvis

anazRaurebis miRebis ufleba, rogorc adamianis ZiriTadi,

konstituciuri ufleba adminitraciuli organos pasuxismgeblobis samarTlebriv safuZvels warmoadgens saqarTvelos konstitucia. saqarTvelos konstituciis 42-e muxlis me-9 nawilis Tanaxmad `yvelasTvis garantirebulia saxelmwifo da TviTmmarTvelobis organoTa da mosamsaxureTagan ukanonod miyenebuli zaralis sasamarTlo wesiT sruli anazRaureba saxelmwifo saxsrebidan”. es danawesi uaRresad mniSvnelovania, ramdenadac saxelmwifo organoTa pasuxismgebloba miyebenuli zianisaTvis qveynis mTavar aqtSia gaTvaliswinebuli. amasTan, mniSvnelovani faqtoria isic, rom aRniSnuli debuleba mocemulia saqarTvelos konstituciis me-2 TavSi, romelic umTavresad saqarTvelos moqalaqeobas, adamianis ZiriTad uflebebsa da Tavisuflebebs awesrigebs, rac SesaZloa, teleologiuri ganmartebis gziT, migviTiTebdes imaze, rom saqarTvelos konstituciis SemqmnelebisaTvis saxelmwifo moxeleTa mier miyenebuli zianis anazRaureba imdenad mniSvnelovani principi iyo, rom igi adamianis ZiriTadi uflebis rangSia ayvanili. rogorc me-17 saukunis udidesi ingliseli moazrovne da ZiriTadi uflebebis Tanamedrove koncefciis fuZemdebeli, jon loki acxadebda, adamianis ulebebi e.w. “adresaxelmwifoebrivi” uflebebia, Sesabamisad saxelmwifo verc mianiWebs, da verc CamoarTmevs maT. adamianebs es uflebebi saxelmwifos Seqmnamde hqondaT da isini “bunebis kanonidan” gamomdinareobs, vinaidan adamiani Tavisufali ibadeba. yovel adamians Tavisi gonis meSveobiT SeuZlia “bunebis kanonis” Secnoba.25 imave konstituciis me-7 muxli adgens, rom “saxelmwifo cnobs da icavs adamianis sayovelTaod aRiarebul uflebebsa da Tavisuflebebs, rogorc waruval da uzenaes adamianur Rirebulebebs. xelisuflebis

25 k. kublaSvili, `ZiriTadi uflebebi”, Tbilisi, 2003w, gv. 33

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13

ganxorcielebisas xalxi da saxelmwifo SezRuduli arian am uflebebiTa da TavisuflebebiT, rogorc uSualod moqmedi samarTliT.” xelisuflebis organoTa boWva adamianis uflebebiT niSnavs imas, rom aRmasrulebel da sasamarTlo xelisuflebasTan erTad, parlaments, rogorc umaRlesi sakanonmdeblo uflebamosilebebis ganmaxorcielebel organos, valdebuleba akisria kanonSemoqmedebiTi saqmianoba ganaxorcielos saqarTvelos konstituciis me-2 Tavis debulebebis gaTvaliswinebiTa da dacviT. Sesabamisad, konstituciis 42-e muxlis me-9 punqti garantiaa imisa, rom kanonmdebeli ver gaauqmebs am instituts konstituciis Secvlis gareSe da Sesabamisad, igi ar aris damokidebuli konkretuli xelisuflebis an politikuri Zalis miswrafebebze, msoflmxedvelobasa Tu politikaze. aRniSnuli danawesi warmoadgens saxelmwifos mxridan administraciuli organos pasuxismgeblobis konstituciis doneze aRiarebas. aRniSnuli norma warmoadgens zogad, fundamentur princips administraciuli organos pasuxismgeblobisa, Tumca igi calke aRebuli moklebulia im konkretikasa Tu sicxades, rac aucilebelia sakanonmdeblo normisaTvis, raTa misi gamoyeneba yovelgvari winaaRmdegobebis, urTierTsawinaaRmdego gadawyvetilebebis gareSe moxdes saerTo sasamarTloebis mier. zogierTi avtori miuTiTebs, rom es ar aris uflebamosilebis norma, romlis safuZvelzec saxelmwifos an TviTmmarTvel erTeuls warmoeqmneba zianis anazRaurebis valdebuleb. 26 ver gaviziareb aRniSnul mosazrebas, rameTu saqarTvelos konstituciis 42-e muxlis me-9 punqtis safuZvelze saxelmwifos an TviTmmarTvelobis organoebs calsaxad warmoeSobaT zianis anazRaurebis valdebuleba. YTumca, praqtikaSi mravali magaliTia imisa, rom sasamarTloebi didi sifrTxiliT udgebian da xSir SemTxvevaSi, ar iyeneben konstituciis im normebs, romlebic Semdeg ar aris detalizebuli sakanonmdeblo Tu kanonqvemdebare aqtebiT. Sesabamisad, konkretizaciis ararsebobis SemTxvevaSi dadgeboda swori Sefardebis da ara uflebis arseboba-ararsebobis sakiTxi. swored amitomac aRniSnulma normam Semdgomi detalizacia da konkretizacia hpova saqarTvelos samoqalaqo kodeqssa da saqarTvelos zogad administraciul kodeqsSi. amasTanave aRsaniSnavia isic, rom administraciuli organos pasuxismgeblobis administraciul-samarTlebrivi da…samoqalaqosamarTlebrivi mowesrigeba warmoadgens kanonmdeblis mizanmimarTul gadawyvetas anu saxeze gvaqvs dualisturi mowesrigeba da ara kolizia.

26

ix. sqolio # 23.

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2. administraciuli organos pasuxismgeblobis

samoqalaqo- samarTlebrivi regulireba

administraciuli organos pasuxismgeblobis institutis maregulirebel normas samoaqalaqo samarTalSi warmoadgens 1005-e muxli. 1005-e muxlis saTauridan (`saxelmwifos pasuxismgebloba misi mosamsaxuris mier miyenebuli zianisaTvis”) gamomdinare, iuridiul literaturaSi aRiarebulia, rom administraciuli organos pasuxismgeblobis maregulirebel danawess Seicavs mxolod 1005-e muxli da araferia naTqvami ssk-is 997-e muxlze, romelic aseve exeba samsaxurebrivi movaleobis Sesrulebisas miyenebuli zianis anazRaurebas. es ori muxli, araTu gamoricxavs erTmaneTs, aramed piriqiT, avsebs erTmaneTs. aRiarebulia, rom moTxovnis uflebaTa konkurenciis safuZvelze, rogorc `lex speciali” ssk-is 1005-e muxli gamoricxavs ssk-is 997-e muxlis gamoyenebas 27 , maSin roca saqme exeba administraciuli organos mier miyenebuli zianis anazraurebas. amis mizezad, rogorc aRvniSne miCneulia is, rom aRniSnuli normebi koliziur normebad ganixileba, Tumca TiToeuli maTgani sruliad gansxvavebul SemTxvevebs awesrigebs, rac cxadia aRniSnul normaTa Soris konkurenciasac gamoricxavs.

2.1. ssk-is 997-e da ssk-is 1005-e muxlebs Soris mimarTeba

ssk-is 997-e da 1005-e muxlebs Soris ZiriTadi gansxvaveba mdgomareobs imaSi, rom 997-e muxlis mixedviT pasuxismgeblobis safuZvelia muSakis mier zianis miyeneba (mesame pirisaTvis) samsaxurebrivi movaleobis Sesrulebis dros, anu samsaxurebrivi uflebamosilebis ganxorcielebisas. ssk-is 997-e muxlisagan gansxvavebiT, ssk-is 1005-e muxli zianis anazRaurebis mTavar pirobad miiCnevs mosamsaxuris mier Tavisi samsaxurebrivi uflebamosilebis darRvevas, anu samsaxurebrivi uflebamosilebis farglebidan gasvlas.

2.2. ssk-is 997-e muxlis moqmedebis farglebi

ssk-is 997-e muxlis mixedviT `piri valdebulia aanazRauros ziani, romelic miadga mesame pirs misi muSakis marTlsawinaaRmdego moqmedebiT Tavisi SromiTi (samsaxurebrivi) movaleobis Sesrulebisas.

27

ix, sqolio # 23.

samagistro naSromi

15

pasuxismgebloba ar dadgeba, Tu muSaki moqmedebda bralis gareSe”. aRniSnuli norma aranair daTqmas ar Seicavs imasTan dakavSirebiT, rom igi ar exeba administraciul organos, igi ar axdens adresatTa dakonkretebas, piriqiT is exeba nebismier pirs. piri ki SeiZleba iyos, rogor fizikuri, aseve iuridiuli 28 . iuridiuli piri ki pirvel yovlisa aris TviT saxelmwifo.29 ssk-is 997-e muxlis mixedviT, pirs zianis anazRaurebis valdebuleba warmoeSoba mxolod im SemTxvevaSi, Tu misi muSaki zians miayenebs sxvas, Tavisi samsaxurebrivi uflebamosilebis ganxorcielebisas, anu 997-e muxlis gamoyenebisaTvis mTavaria davadginoT, rom piri moqmedebda samsaxurebrivi uflebamosilebis ganxorcielebisas. imis dasadgenad piri axorcielebda Tu ara samsaxurebriv uflebamosilebas, mxedvelobaSi unda iqnes miRebuli rogorc subieqturi, aseve obieqturi faqtori. subieqturi faqtori gulisxmobs imas, Tu rogor aRiqmeba piris qmedeba gareSe pirTa mier, xolo obieqturi faqtori ki imas gulismobs realurad samsaxurebrivi uflebamosilebis farglebSi moqmedebs piri Tu ara. imis dasadgenad piri realurad moqmedebda Tu ara samsaxurebrivi uflebamosilebis farglebSi, unda gaviTvaliswinoT, rom qmedeba maSin CaiTvleba sajarosamarTlebrivi uflebamosilebis farglebSi ganxorcielebulad Tu qmedebasa da samsaxurebriv uflebamosilebas Soris arsebobs e.w. gare da Sida urTierTkavSiri. 30 gare urTierTkavSiri saxezea, roca qmedeba samsaxurebrivi movaleobis Sesrulebis periodSi xorcieldeba. 31 Sida urTierTkavSiri saxezea, roca qmedeba uSualod da Sedegobrivad samsaxurebrivi uflebamosilebis ganxocielebidan gamomdinareobs. 32 cxadia, rom administraciuli organo misi TanamSromlebis nebismieri qmedebisaTvis ver iqneba pasuxismgebeli. magaliTisaTvis SegviZlia moviyvanoT policieli, romelic samsaxuris Semdeg wavida megobrebTan saqeifod da roca saxlSi brundeboda, samsaxurebrivi manqaniT gadaWarbebuli siCqariT moZraobisas moaxdina avtoavaria da ziani miayena mesame pirs. miuxedavad imisa, rom uniformaSi gamowyobili, samsaxurebrivi manqaniT moZravi policieli mesame piris mxridan SesaZloa aRqmul iqnes rogorc samsaxurebrivi uflebamosilebis farglebSi moqmedi piri (subieqturi faqtori), cxadia, rom policieli realurad ar asrulebda samsaxurebriv movaleobas (obieqturi faqtori) da amdenad mis mier miyenebul zianzec cxadia pasuxismgebloba Tavad mas unda daekisros da ara

28

saqarTvelos samoqalaqo kodeqsis komentari, wigni IV, tomi II, Tbilisi, 2001w, gv. 400. 29

saqarTvelos samoqalaqo kodeqsis komentari, wigni I, Tbilisi, 2002w, gv. 106 30

ix. sqolio # 23. 31

iqve. 32

iqve.

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16

administraciul organos (am SemTxvevaSi - Sinagan saqmeTa saministros). ganvixiloT meore magaliTi, vTqvaT sabaJos TanamSromeli, Tavisi samsaxurebrivi uflebamosilebis ganxorcielebis dros piradi wyenis motiviT sabaJoze ar atarebs Tavisi Svilis yofil qmars, romelic sazRvargareT mniSvnelovan biznes Sexvedraze miemgzavreba, ris gamoc man mniSvnelovani materialuri ziani ganicada. am SemTxvevaSi sabaJos moxele marTalia asrulebda Tavis samsaxurebriv uflebamosilebas (gare urTierTkavSiri), magram sinamdvileSi damdgari Sedegi (ziani) ar aris gamowveuli muSakisTvis dakisrebuli samsaxurebrivi movaleobiT (Sida urTierTkavSiri), ramdenadac muSakis samsaxurebriv uflebamosilebas ar warmoadgens adamianebze SurisZieba piradi motiviT. ssk-is 997-e muxlis erT-erTi ganmasxavavebeli elementi 1005-e muxlisagan aris isic, rom 997-e muxli exeba zogadad muSakis mier Cadenil marTlsawinaaRmdego qmedebas, xolo 1005-e muxli ki uSualod samsaxurebrivi uflebamosilebis darRvevas. am ors (samsaxurebrivi uflebamosilebis darRvevasa da marTlsawinaaRmdego qmedebas) Soris ki principuli gansxvavebaa, ase magaliTad: mosamsaxure, romelic samsaxuridan gaigzavna sasamarTlo procesze arRvevs moZraobis wesebs, raTa droulad mivides procesze. amiT is arRvevs marTlwesrigs, magram asrulebs Tavis samsaxurebriv movaleobas. aris sxva SemTxvevebic, roca erTi samarTalurTierTobis darRveva, ar warmoadgens meore samarTalurTierTobis darRvevas, aramed piriqiT, erTi samarTalurTierTobis darRveva SesaZloa meore marTlzomieri qmedebis aucilebel elementad ganixilebodes. aRniSnulis klasikur magaliTad SeiZleba moviyvanoT `sajaro samsaxuris Sesaxeb” saqarTvelos kanonis 55-e da 56-e muxlebi. sajaro mosamsaxure valdebulia Seasrulos Tavisi samsaxurebrivi movaleoba da zemdgomis miTiTeba, Tundac arsebobdes eWvi aRniSnuli normis kanonierebasTan dakavSirebiT. 33 anu `sajaro samsaxuris Sesaxeb” saqarTvelos kanonis mixedviT, mosamsaxure valdebulia Seasrulos Tundac kanonsawinaaRmdego davaleba, garda kanoniT gaTvalisiwnebuli Zalian mcire gamonaklisi SemTxvevebisa. 34 aseve aRniSnuli ar exeba sisixlissamarTlebrivad dasjad qmedebebs, ramdenadac am dros ukve moqmedebs ara sjaro samsaxuris Sesaxeb kanoni, aramed saqarTvelos sisxlis samarTlis kodeqsi, romlis Tanaxmadac winaswari SecnobiT danaSaulebrivi brZanebis an

33

saqarTvelos parlamentis 1997 wlis 31 oqtombris kanoni #1022 `sajaro samsaxuris Sesaxeb” (2010 wlis 2 seqtembris mdgomareobiT), muxli 55. 34

iqve, muxli 56.

samagistro naSromi

17

gankargulebis SesrulebisaTvis pirs sisxlissamarTlebrivi pasuxismgebloba daekisreba saerTo wesiT.35 SesaZloa sajaro samsaxuris Sesaxeb kanonis es Canaweri erTi SexedviT ucnaurad da gaumarTleblad mogveCvenos, Tumca am normis siRrmiseuli analizi cxadyofs kanonmdeblis mizans efeqturi sajaro mmarTvelobisa. erTi wuTiT davuSvaT, rom sajaro moxeles SeeZlos uari Tqvas Tavisi samsaxurebrivi uflebamosilebis ganxorcielebaze im motiviT, rom aRniSnuli qmedeba misi azriT kanonsawinaaRmdegoa. amis daSveba praqtikulad mmarTvelobiTi saqmianobis paralizebas moaxdenda. cxadia arsebobs riskic, rom aRniSnulma qmedebam marTlac miayenos ziani mesame pirs, magram am risks efeqturi sajaro mmarTveloba yovelTvis moicavs Tavis TavSi da Sesabamisad zianis anazRaurebac mas da ara konkretul sajaro moxeles ekisreba. SeiZleba vTqvaT, rom mosamsaxure, romelic moqmedebs `sajaro samsaxuris Sesaxeb” saqarTvelos kanonis 55-e muxlis dacviT da Tavisi samsaxurebrivi uflebamosilebis ganxorcielebisas marTlsawinaaRmdego qmedebiT zians ayenebs mesame pirs, misi qmedeba zianis anazRaurebis nawilSi srulad eqceva ssk-is 997-e muxlis regulirebis sferoSi, rac imas niSnavs, rom miyenebuli ziani srulad unda aanazRauros administraciulma organom. 36 aRniSnuli SemTxvevidan kargad Cans, rom marTlsawinaaRmdego qmedeba da samsaxurebrivi uflebamosilebis darRveva yovelTvis ar emTxveva erTmaneTs da Sesabamisad ssk-is 997-e da ssk-is 1005-e muxlebis regulirebis sferoc gansxvavebulia, rac kidev erTxel abaTilebs aRniSnul normaTa Soris uflebrivi koliziis Taobaze arsebul mosazrebas.

2.2.1. marTlsawinaaRmdego qmedeba 997-e muxlis Semadgenlobis erT-erTi umniSvnelovanesi elementia marTlsawinaaRmdego qmedeba. marTlwinaaRmdegoba moicavs zogadad sazogadoebrivi wesrigis, marTlwesrigis, samarTlebrivad daculi sikeTis xelyofas, rac gacilebiT farTo cnebaa, vidre 1005-e muxliT gansazRvruli samsarurebrivi uflebamosilebis darRveva. ssk-is 997-e

35 saqarTvelos parlamentis 1999 wlis 22 ivlisis kanoni #2287 “sisxlis samarTlis kodeqsi” (2010 wlis 2 seqtembris mdgomareobiT), muxli 37. 36 saqarTvelos parlamentis 1997 wlis 26 ivnisis kanoni #786 “saqarTvelos samoqalaqo kodeqsi”, (2010 wlis 2 seqtembris mdgomareobiT), muxli 997.

samagistro naSromi

18

muxlis miznebisaTvis marTlsawinaaRmdego qmedeba, rogorc zemoT aRvniSne, ar moicavs sisxlissmarTlebrivad dasjad qmedebas, ramdenadac aRniSnuli gamomdinareobs saqarTvelos sisxlis samarTlis kodeqsis 37-e da saqarTvelos samoqalaqo kodeqsis 997-e muxlebis Sinaarsis teleologiuri reduqciis meTodiT ganmartebidan. samsaxurebrivi uflebamosilebis darRveviT piri arRvevs marTlwesrigs, magram ara piriqiT, anu marTlwesrigis darRveviT piri yovelTvis ar arRvevs samsaxurebriv uflebamosilebas. Tumca ssk-is 997-e muxli Tavisi formulirebidan gamomdinare, gamoricxavs samsaxurebrivi uflebamosilebis darRvevas, radgan aRniSnuli muxlis meore aucilebeli elementi aris swored is, rom piri moqmedebdes samsaxurebrivi uflebamosilebis farglebSi.

2.2.2. samsaxurebrivi uflebamosileba ssk-is 997-e muxlis meore aucilebeli elementi aris samsaxurebrivi uflebamosileba. aRniSnuli muxlis formulireba `SromiTi (samsaxurebrivi) movaleobis Sesrulebisas”, srulebiTac ar niSnavs droiT periods da ar SemosazRvravs qmedebas konkretuli qronometraJiT, anu aq saubaria ara imaze, rom marTsawinaaRmdego qmedeba Cadenili unda iyos samsaxurebrivi uflebamosilebis ganxorcielebis drois qronologiur monakveTSi, vTqvaT samuSao saaTebSi, aramed niSnavs imas, rom marTsawinaaRmdego qmedeba Cadenili unda iyos maSin, roca piri moqmedebs samsaurebrivi uflebamosilebis Sesabamisad. inglisur deliqtur samarTalSi (law of torts) damkvidrebulia Sexeduleba, rom uflebamosilebis gadametebiT moqmedeba (ultra vires) TavisTavad ar iwvevs zianis anazRaurebis valdebulebas. aRniSnuli Sexeduleba araerTxel iqna ganmtkicebuli lordTa palatis gadawyvetilebebiT. 37 Tumca, ufro saintereso sakiTxs warmoadgens is, aris Tu ara uflebamosilebis gadameteba sajaro moxelis mier miyenebuli zianis anazRaurebis aucilebeli winapiroba. es uaRresad mniSvnelovania, vinaidan Tu ultra vires warmoadgens zianis anazRaurebis aucilebel winapirobas, gamodis, rom mosarCelem TiToeul konkretul SemTxvevaSi, unda amtkicos, rom sajaro moxele moqmedebda sajaro samarTlebrivi uflebamosilebiT aRmWurveli normebis darRveviT. Tu

37

Abbot v. Sullivan [1952] 1 KB 189, 215; Dunlop v. Woollahra Municipal Council [1982] AC 158, 172;

Lonrho Plc v. Tebbit [1991] 4 All ER 973, 980 (High Court, upheld in CA, [1992] 4 All ER 280); R v. Knowsley

MBC, ex p Maguire, The Times, 26 June 1992; R. v Home Secretary ex p Dew [1987] 1 WLR 881, 894-5 at al.

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gaviTvaliswinebT inglisuri samarTlisa da administraciuli marTlmsajulebis Taviseburebas, rac gulisxmobs imas, rom rodesac saqme exeba aRmasrulebeli xelisuflebis aqtebs, sasamarTloebi kmayofildebian mxolod imis SemowmebiT iyo Tu ara aqti mizanSewonilobis farglebSi (e.w. test of reasonabliness), miviRebT Sedegs, rom arc Tu ise xSirad, mosarCele sasurvel Sedegs ver miiRebs. “mizanSewonilobis testidan” erTaderT gamonakliss warmoadgens 1998 wlis “adamianis uflebebis aqtis” safuZvelze Setanili sarCelebi. vinaidan “adamianis uflebebis aqti” warmoadgens inkorporirebul deklaracias adamianis uflebebisa da Tavisuflebebis Sesaxeb, inglisis sasamarTloebi valdebulni xdebian amgvari saqmeebis mimarT gamoiyenon strasburgis sasamarTlos praqtika da proporciulobis testi. Tumca, aqve aRsaniSnavia, rom saxelwifo organoTa mier miyenebuli zianis anazRaurebis moTxovniT Setanili sarCelebis SemTxvevaSi, “adamianis uflebebis aqti” ar gamoiyeneba, vinaidan strasburgis sasamarTlos mier damkvidrebuli praqtikis Sesabamisad, es saxelmwifo organoTa diskrecias (e.w. margin of appreciation) mikuTvnebuli sakiTxebia. zemoaRniSnulTan mimarTebiT, jer-jerobiT gaurkvevelia Tu rogori iqneba axladSeqmnili uzenaesi sasamarTlos praqtika. bevri miiCnevda, rom lordTa palata, rogorc parlamentis nawili, bevr SemTxvevaSi Tavs ikavebda Tavis mier Seqmnili mTavrobis poziciebis Sesustebisagan. savaraudod, uzenaesi sasamarTlo bevrad Tamami iqneba aRmasrulebeli xelisuflebis aqtebis Semowmebisas. ramdenadac ssk-is 997-e muxlis Tanaxmad marTsawinaaRmdego qmedeba Cadenili unda iyos samsaxurebrivi uflebamosilebis Sesabamisad moqmedi piris mier, aqedan gamomdinare SegviZlia vTqvaT, rom 997-e muxlis miznebisaTvis marTlsawinaaRmdego qmedeba ar moicavs samsaxurebrivi uflebamosilebis darRvevas, aramed piriqiT exeba swored im SemTxvevas, roca piri moqmedebs samsaxurebrivi uflebamosilebis farglebSi. swored aqedan gamomdinare, am SemTxvevaSi muSakis mier mesame pirisaTvis zianis miyenebisaTvis samuSaos mimcemi pasuxs agebs Tavisi da ara sxvisi bralisaTvis. 38 aRniSnul SemTxvevaSi muSakis moqmedeba Sefasebul unda iqnes rogorc TviT sauSaos mimcemis moqmedeba. 39 aRniSnuli koncefcia (iuridiuli piris pasuxismgebloba misi muSakebis qmedebis gamo, rogorc sakuTari qmedeba da sakuTari brali) jer kidev 1949 wels s.n. bratusma wamoayena.40

38

ix. sqolio # 28, gv. 401. 39

iqve. 40

iqve, gv. 402.

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2.2.3. bralis formebi ssk-is 997-e muxlis SemadgenlobisaTvis aucilebelia, rom piris qmedeba iyos braleuli. brali ki moicavs rogorc ganzrax, aseve gaufrTxilebel qmedebas. ganzraxvis definicias samoqalaqo kodeqsi ar iZleva. civilistur doqtrinasa da sasamarTlo praqtikaSi gamoiyeneba ganzraxvis is cneba, romelic sisxlis samarTalSia SemuSavebuli. ganzrax moqmedebs is, vinc acnobierebs Tavisi moqmedebis rogorc Sedegs, ise misi movaleobisadmi winaaRmdegobas da amas akeTebs sakuTari surviliT. amdenad ganzraxva es aris marTlsawinaaRmdego Sedegis codna da survili, sxva sityvebiT: Sedegis codna da survili marTlwinaaRmdegobis SegnebiT. aqedan Cans, rom ganzraxvis cnebisaTvis saWiroa ori elementi: inteleqtualuri (kognitiuri) da nebelobiTi (voluntatiuri). inteleqtualuri elementi samarTaldarRvevis cnobierebis mdgomareobis Sefasebaa. 41 nebeloba ki gulisxmobs samarTaldarRvevis Semadgenlobis ganxorcielebis survils.42 samoqalaqo kodeqsi arc gaufrTxileblobis definicias iZleva. Tu ganzraxvis viTarebaSi civilistika mTlianad sisxlis samarTals emyareba, gaufrTxileblobaSi mas garkveuli koreqtivebi Seaqvs. gaufrTxileblad moqmedebs is, vinc arRvevs samoqalaqo brunvisaTvis damaxasiaTebel aucilebel yuradRebianobas. gaufrTxileblobis cneba araa damokidebuli yuradRebianobis im xarisxze, romelic SeiZleba gamoiCinos individualurad braleulma pirma. gaufrTxilebloba samoqalaqo samarTalSi ganisazRvreba moTxovnis obieqturi masStabebiT. amitomacaa, rom evropul doqtrinasa da sasamarTlo praqtikaSi gaufrTxileblobis sinonimad zogjer obieqturi gaufrTxileblobac gamoiyeneba.43 ssk-is 997-e (iseve rogorc ssk-is 1005-e) muxli gamoricxavs bralis gareSe pasuxismgeblobas da es bunebrivia administraciuli organos pasuximgeblobis dualisturi mowesrigebis pirobebSi. bralis gareSe pasuxismgebloba, rogorc aseTi damaxasiaTebeli ar aris samoqalaqo samarTlisaTvis, garda gamonaklisi SemTxvevebisa, 44 romelic

41

saqarTvelos samoqalaqo kodeqsis komentari, wigni III, Tbilisi, 2001w, gv. 382. 42

iqve, gv. 383. 43

iqve, gv. 384-385. 44

iqve, gv. 387.

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gaTvaliswinebulia ssk-is 999-e (satransporto saSualebis eqsploataciis Sedegad damdgari ziani), me-1000 (nagebobidan gamomdinare mometebuli safrTxiT gamowveuli ziani), 1003-e (cxovelis mier miyenebuli ziani), 1004-e (Senobis CamoqceviT gamowveuli ziani) muxlebiT. aRniSnulis garda, Tavisi specifikurobidan gamomdinare administraciul samarTalSi arsebobs sxva SemTxvevebic, romelTa drosac pasuxismgebloba mainc warmoiSoba, miuxedavad bralisa. bralis gareSe pasuxismgeblobas iTvaliswinebs zogadi administraciuli kodeqsis 208-e muxli.

2.3. ssk-is 1005-e muxlis moqmedebis sfero administraciuli organos pasuxismgeblobis maregulirebel samoqalaqo-samarTlebriv normas aseve warmoadgens ssk-is 1005-e muxli. ssk-is 1005-e muxls ssk-is 997-e muxlisagan ganasxvavebs is, rom 1005-e muxli exeba samsaxurebrivi uflebamosilebis darRveviT miyenebul zians, xolo ssk-is 997-e muxli ki piriqiT, samsaxurebrivi uflebamosilebis ganxorcielebisas miyenebul zians. ssk-is 1005-e muxls szak-is 208-e muxlisagan ZiriTadad ganasxvavebs ori elementi. pirveli ganmasxvavebeli niSani aris is, rom ssk-is 1005-e muxlis mixedviT pasuxismgebloba dgeba im SemTxvevaSi, roca piri moqmedebs samsaxurebrivi movaleobis (uflebamosilebis) darRveviT anu samsaxurebrivi uflebamosilebis gadametebiT. meore ganmasxvavebeli niSani ki aris brali, kerZod ki ssk-is 1005-e muxlis mixedviT pasuxismgebloba dgeba mxolod braleuli qmedebis Sedegad da bralis gareSe pasuxismgebloba gamoricxulia.

2.3.1. samsaxurebrivi movaleobis cneba ssk-is 1005-e muxlis Semadgenlobis erT-erTi aucilebeli pirobaa is, rom qmedeba Cadenili iyos samsaxurebrivi uflebamosilebis (movaleobis) darRveviT. samsaxurebrivi movaleoba aris im uflebamosilebaTa erToblioba, romelic ama Tu im pirs akisria Tavisi samsaxuridan gamomdinare.

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garda im zogadi valdebulebebisa, rac ama Tu im administraciuli organos TanamSromlebs zogadad gaaCniaT (magaliTad rogoric aris samsaxurSi drouli gamocxadeba, Sinaganawesis ganuxreli dacva da sxva), samsaxuris specifikidan gamomdinare ama Tu im pirs gaaCnia gansxvavebuli samsaxurebrivi movaleobebi. ase magaliTad, Tavdacvis saministros sajaro mosamsaxureTa movaleobebi mniSvnelovnad gansxvavdeba ekonomikisa da mdgradi ganviTarebis saministros sajaro mosamsaxureTa valdebulebisagan. samsaxurebrivi movaleobebis ZaliT piri ganicdis garkveul boWvas am valdebulebebiT, ramdenadac is Tavad iRebs pasuxismgeblobas, rom imoqmedos am valdebulebebis Sesabamisad.

2.3.2. samsaxurebrivi movaleobis farglebi ramdenadac Tavad xSir SemTxvevaSi samsaxurebrivi movaleobebia gansxvavebuli, specifikidan gamomdinare, Sesabamisad gansxvavdeba samsaxurebrivi uflebamosilebis farglebic. magaliTad `samxedro valdebulebisa da samxedro samsaxuris” Sesaxeb saqarTvelos kanonis 31-e mulis me-4 punqtis `T” qvepunqtis mixedviT piri samsaxurebriv uflebamosilebas asrulebs ara marto samsaxurSi yofnis periodSi, aramed samsaxuridan saxlSi da saxlidan samsaxurSi mgzavrobis, gadaadgilebis drosac. samsaxurebrivi uflebamosilebis farglebis dadgenas Zalian didi mniSvneloba aqvs administraciuli organos pasuxismgeblobis sakiTxis ganxilvisas, rameTu amaze aris damokidebuli pasuxismgebeli pirisa da Sesabamisad zianis anazRaurebis sakiTxic.

2.3.3. bralis formebi ssk-is 1005-e muxlis mixedviT uaRresad sainteresoa bralis sakiTxis mowesrigeba administraciuli organos pasuxismgeblobisas frangul samarTalSi. Sesabamis komentarebSi miTiTebulia, rom administraciuli aqtis baTiloba per se sakmarisia bralis dasadgenad, rac, Tavis mxriv, sakmarisia

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pasuxismgeblobis dadgomisaTvis. 45 es cneba aRiarebulia franguli administraciuli samarTlis fuZemdeblur principad. Tumca, aqve aRsaniSnavia, rom es postulati damkvidrda bolo ocdaaTi wlis manZilze. manamde aRniSnuli sakiTxi warmoadgenda rogorc Teoriuli kamaTis sagans, aseve xdeboda winaaRmdegobrivi sasamarTlo gadawyvetilebebis sababi. tradiciulad miCneuli iyo, rom administraciuli aqtis arakanoniereba, rogorc aseTi, Tavis TavSi ar moicavda brals da Sesabamisad, mosarCeles damatebiT uwevda imis mtkiceba, rom qmedebis ganxorcielebisas sajaro moxele braleulad moqmedebda. Vuldy-s saqmeSi saxelmwifo sabWom uari gancxada daekisrebiana sajaro organosaTvis zianis anazRaureba, rodesac baTilad iqna cnobili administraciuli aqti, romelic ukrZalavda mosarCeles SvidsarTuliani Senobis aSenebas. aRniSnuli aqti gabaTilda faqtobrivi Secdomis gamo. Tumca, aqve sasamarTlom daadgina, rom aqtis arakanoniereba ver CaiTvleboda bralis eqvivalenturad, rac, Tavis mxriv, unda gamxdariyo zianis anazRaurebis safuZveli. 46 dResdReobiT TiTqmis aravin daobs imaze, rom aqtis arakanoniereba sakmarisia pasuxismgeblobis dadgomisaTvis da utoldeba piris braleulobas. 47 Tumca, formulas - arakanoniereba=brals aqvs erTi mniSvnelovani gamonaklisi. frangul administraciul samarTalSi arsebuli brali ar aris calsaxovani: garkveul sferoebSi sasamarTlo, pasuxismgeblobis dadgomisaTvis, moiTxovs bralis maRali xarisxis dadgenas, romelsac uxeS brals (fauet lourde) uwodeben. rodesac sasamarTlo moiTxovs uxeSi bralis damtkicebas, aqtis arakanoniereba Tavis TavSi aRar moicavs piris braleulobasac. mxolod gansazRvruli kanondarRvevis SemTxvevaSi iqneba zemoaRniSnuli formula ZalaSi. amis Sefasebisas sasamarTloebi iTvaliswineben sxvadasxva faqtorebs. mxedvelobaSi miiReba mopasuxis ganzraxva da motivebi, aseve is faqtobrivi Tu samarTlebrivi sirTuleebi, rac Tan axlda Sesabamis administraciul warmoebas.48 ssk-is 1005-e muxlis mixedviT pasuxismgeblobis safuZvelia braleuli qmedeba da am muxlis mixedviT bralis gareSe pasuxismgebloba gamoricxulia. kerZod ki saubaria ganzrax an uxeSi gaufrTxileblobiT miyenebul zianze. aqve aRsaniSnavia isic, rom uxeSi gaufrTxileblobis definicias qarTuli kanonmdebloba ar icnobs. unda vivaraudoT, rom uxeS gaufrTxileblobaSi kanonmdebelma

45

ix. sqolio # 2, gv. 30. 46

CE 7 June 1940, Vuldy [1940] Rec. 197; 47

CE 4 Nov. 1992, Lorgues, RDP 1993.261 (procedural illegality); CAA Lyon 9 Dec. 1992, Gire [1992] Rec 1296 (erreur manifeste d’appreciation); CE 3 Apr. 1992, SARL Nouvelles Frontieres, RDP 1993.262 (error of law). 48

CE 29 June 1990, Societe CERP [1990] Rec. 193.

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igulisxma gaufrTxileblobis ufro mZime forma, rasac sisxlis samarTalSi TviTimedovneba ewodeba.49 ssk-is 1005-e muxlis 1-li nawilis 1-li winadadebis mixedviT administraciuli organos mosamsaxuris mier ganzrax an uxeSi gaufrTxileblobiT gamowveuli zianisaTvis pasuxismgebelia Tavad is administraciuli organo, romelSic muSaobs es piri. Tumca garkveul bundovanebas Seicavs amave muxlis amave nawilis meore winadadeba.

2.3.4. winaaRmdegoba ssk-is 1005-e muxlis 1-li nawilis

I da II winadadebebs Soris

ssk-is 1005-e muxlis 1-li nawilis me-2 winadadebis mixedviT `ganzraxvis an uxeSi gaufrTxileblobis dros mosamsaxure saxelmwifosTan erTad solidarulad agebs pasuxs” da es maSin, roca amave muxlis 1-li winadadebis mixedviT bralis zustad igive formebis dros pasuxismgebelia saxelmwifo an is organo sadac muSaobs zianis mimyenebeli. es aris garkveuli xarvezi da normis teleologiuri reduqciiT ganmartebis Sedegad, SeiZleba iTqvas, rom pirvel winadadebaSi saubari unda iyos ara ganzrax an uxeS gaufrTxileblobaze, aramed Cveulebriv gaufrTxileblobaze. zogi avtori ufro Sors midis da ambobs, rom pirveli winadadeba unda Camoyalibdes im formulirebiT, rasac Seicavs saqaraTvelos zogadi administraciuli kodeqsis 208-e muxlis 1-li nawili50 , Tumca mimaCnia, rom qarTul sinamdvileSi aseTi midgoma gaumarTlebelia. roca saxeze gvaqvs administraciouli organos pasuxismgeblobis dualisturi mowesrigeba da aRniSnul instituts awesrigebs, rogorc samoqalaqo, aseve administraciuli samarTali aseTi midgoma gaumarTlebelia, radgan ssk-is 1005-e muxlis 1-li nawilis 1-li winadadebis amgvarad formulireba, azrs ukargavs administraciuli kodeqsis 208-e muxls da igi sruliad usargeblo da amosaRebi xdeba.

2.3.5. ziani mesame pirTa mimarT

49

ix. sqolio # 35, mux. 10. 50

ix. sqolio # 3, gv. 335.

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ssk-is 1005-e muxlis Semadgenlobis mixedviT pasuximgebloba dgeba im SemTxvevaSi, Tu ziani miadga sxva, mesame pirs. anu aq saubaria imaze, rom ziani adgeba ara Tavad im organos, dawesebulebas, sadac muSaobs es piri, aramed zianis obieqti aris sxva, mesame piri. Tu ziani adgeba Tavad im organos, sadac es piri muSaobs, maSin gamoiyeneba ara aRniSnuli 1005-e muxli, aramed samoqalaqo kodeqsis sxva muxlebi zianis anazRaurebis Taobaze.

2.4. pasuxismgeblobis farglebi samoqalaqo kodeqsis

mixedviT samoqalaqo kodeqsis zemoaRniSnuli muxlebis analizis Sedegad unda iTqvas, rom rodesac muSaki samsaxurebriv uflebamosilebas arRvevs `Cveulebrivi” gaufrTxileblobiT, anu bralis (gaufrTxileblobis) ufro msubuqi formis dros, administraciuli organos pasuxismgebloba SeuzRudavia, xolo ganzraxvis an uxeSi gaufrTxileblobis SemTxvevaSi ki muSaki saxelmwifosTan erTad solidarulad agebs pasuxs. aqve aRsaniSnavia isic, rom pasuxismgeblobis amgvari mowesrigeba vrceldeba e.w. `gare urTierTobaze” anu urTierTobaze zianis mimyenebels, muSaks, romelic moqmedebs administraciuli organos saxeliT da dazaralebuls, mesame pirs, Soris, xolo urTierToba Tavad muSaksa da im dawesebulebas Soris, romlis saxeliTac igi moqmedebs, regulirdeba samoqalaqo kodeqsis mixedviT da administraciul organos SeuZlia regresis wesiT moiTxovos zianis anazRaureba kanonmdeblobiT dadgenili wesiT.

3. administraciuli organos pasuxismgebloba zogadi

administraciuli kodeqsis mixedviT

administraciuli organos pasuxismgeblobis regulirebis samarTlebrivi safuZvelia saqarTvelos zogadi administraciuli kodeqsic. Tumca unda iTqvas, rom saqarTvelos zogadi administraciuli kodeqsi aRniSnuli institutis sruliad sxva, samoqalaqo kodeqsisagan gansxvavebul mxares awesrigebs, Sesabamisad

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regulirebac gansxvavebulia mTel rig aspeqtebSi da es cxadad Cans zak-is 208-e muxlis Semadgenlobidan.

3.1. pasuxismgeblobis safuZveli administraciuli organos pasuxismgeblobis administraciul-samarTlebriv aspeqtebs aregulirebs saqarTvelos zogadi administraciuli kodeqsis 207-e_209-e muxlebi, magram winamdebare Temis miznebisaTvis mimovixilav mxolod 208-e muxls. swored zak-is 208-e muxli warmoadgens umniSvnelovanes qvakuTxeds administraciuli organos pasuxismgeblobis regulirebaSi.

3.1.1. brali szak-is 208-e muxlis mixedviT szak-is 208-e muxlis 1-li nawilis Tanaxmad `saxelmwifo administraciuli organos, agreTve misi Tanamdebobis piris an sxva saxelmwifo mosamsaxuris mier misi samsaxurebrivi movaleobis ganxorcielebisas miyenebuli zianisaTvis pasuxismgebelia saxelmwifo”. aRniSnuli danawesidan gamomdinare administraciuli organos pasuxismgebloba dgeba nebismier SemTxvevaSi, Tu mesame pirs miadga ziani administraciuli organos muSakis mxridan. gabatonebuli mosazrebiT: administraciuli organos pasuxismgeblobis erT-erT aucilebel elementad miiCneva brali da bralis gareSe pasuxsimgebloba dgeba mxolod gamonaklis SemTxvevebSi 51 , Tumca, Cemi azriT, aRniSnuli ar gamomdinareobs szak-is 208-e muxlidan. piriqiT, 208-e muxlis Tanaxmad administraciuli organos pasuxismgebloba misi muSakis mier miyenebuli zianiasaTvis dgeba bralis miuxedavad da swored es aris erT-erTi umniSvnelovanesi ganmasxvavebeli niSani administraciuli organos pasuxsimgeblobis samoqalaqosamarTlebriv da administraciulsamarTlebriv regulirebas Soris. aRniSnulis dasturia saqarTvelos uzenaesi sasasmarTlos erT-erTi ganCineba, romelSic sasamarTlo iyenebs saqarTvelos zogad administraciuli

51


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kodeqsis 208-e muxls, rogorc saxelmwifo mosamsaxuris mier misi samsaxurebrivi uflebamosilebis ganxorcilebisas miyenebuli zianis anazRaurebis samarTlebriv safuZvels da meores mxriv uTiTebs, rom ver gaiziarebs saapelacio sasamarTlos mier sarCelis dakmayofilebis safuZvlad ssk-is 1005-e muxlis gamoyenebas, vinaidan miTiTebuli normis mixedviT saWiroa bralis arseboba, konkretul SemTxvevaSi ki saxelmwifo mosamsaxuris braleuli qmedeba ar aris dadgenili.52 administraciuli organos bralis gareSe pasuxismgebloba sruliad Seesabameba sxva civilizebuli, ganviTarebuli qveynebis sinamdviles da amgvar mowesrigebas icnobs igive franguli administraciuli samarTalic. 53 Tumca, aqve unda aRiniSnos, rom igive safrangeTis administraciuli sasamarTloebi umetes SemTxvevaSi Tavs ikaveben bralis gareSe pasuxismgeblobis Sefardebisagan da amis mizezi aris umTavresad is, rom mizez-Sedegobrivi kavSirisa da braleulobis ararsebobis fonze, sasamarTloebs ufrodaufro uZneldebaT zianis gonivrul farglebSi gamoTvla. bralis gareSe pasuxismgebloba frangul administraciul samarTalSi eyrdnoba or mTvar princips: pirveli es aris e.w. socialuri da politikuri Tanasworobis principi, romlis Tanaxmadac Tu Tanasworobis principis sawinaaRmdegod arsebiTi ziani adgeba romelime kerZo pirs/pirTa jgufs, maSin aseTi ziani unda anazRaurdes, Tundac es aqti iyos kanonieri. meore ki es aris e.w. riskis principi, 54 romlis ZiriTadi arsic mdgomareobs imaSi, rom administraciul organos xSirad uwevs sazogado keTildReobisaTvis garkveul riskze wasvla da es riski xSirad aucilebelia sajaro mmarTvelobis efeqturad gansaxorcieleblad. 55 riskze dafuZnebuli bralis gareSe pasuxismgeblobis klasikuri magaliTia saqme Regnault-Desroziers, sadac saxelmwifos pasuxismgebloba daekisra samxedro aRWurvilobis nagavsayrelze momxdari afeTqebiT axlomdebare dasaxlebisaTvis miyenebuli zianisaTvis. 56 am gadawyvetilebam safuZveli daudo mometebuli safrTxis wyaroebis Sedegad damdgari zianisaTvis bralis gareSe pasuxismgeblobas, sadac saxelisuflebo organoebi pasuxismgebelni arian mimdebare teritoriis safrTxis qveS CayenebisaTvis da Sesabamisad, pasuxsac ageben zianis SemTxvevaSi. Tumca, aqve unda aRiniSnos, rom is

52

saqarTvelos uzenaesi sasamarTlos administraciul da sxva kategoriis saqmeTa palatis ganCineba #bs-782-369 (k-05), q. Tbilisi, 2005 wlis 20 oqtomberi. 53

ix. sqolio # 2, gv. 138. 54

ix. sqolio # 2, gv. 137. 55

iqve, gv. 138-139. 56

CE 28 Mar. 1919, Regnault-Desroziers [1919] Rec 329.

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mecnierebi, romlebic imedovnebdnen bralis gareSe pasuxismgeblobis farTo interpretaciis damkvidrebas, droTa ganmavlobaSi, imedgacruebulni darCnen, ramdenadac zemoaRniSnuli doqtrinis viwro interpretacia damkvidrda franguli administraciuli sasamarTloebis mier. garda samxedro obieqtebisa, es doqtrina gavrcelebul iqna energetikul obieqtebzec. swored sasamarTloTa TavSekaveba gaxda mizezi imisa, rom bralis gareSe pasuxismgeblobis kuTxiT, mxolod ramdenime cnobili saqme damTavrda mosarCeleTa warmatebiT. aqve aRsaniSnavia, rom ssk-s me-1000 muxlis 1-li nawili adgens, rom “Tu ama Tu im nagebobidan gamomdinareobs mometebuli safrTxe am nagebobaSi warmoebuli, moTavsebuli an miwodebuli energiisagan, nivTierebisagan, maSin am nagebobis mflobeli valdebulia, Tuki am safrTxis praqtikul ganxorcielebas mohyva adamianis sikvdili, sxeulis an janmrTelobis dazianeba anda nivTis dazianeba, aunazRauros dazaralebuls aqedan warmoSobili ziani. igive pasuxismgebloba gamoiyeneba xanZarsaSiSi an afeTqebasaSiSi, Sxamiani an momwamvleli nivTierebis mflobelebis mimarT, roca am nivTierebebidan mometebuli safrTxe gamomdinareobs.” miuxedavad imisa, rom me-1000 muxlis teqstSi araferia naTqvami bralze, damkvidrebulia Sexeduleba, rom mometebuli safrTxis wyaroebidan miyenebuli zianis Tavisebureba swored imaSi mdgomareobs, rom misi anazRaurebisaTvis sakmarisia sami pirobis dadgoma: a) ziani; b) zianis mimyeneblis marTlsawinaaRmdego qmedeba; g) mizezobrivi kavSiris arseboba marTlsawinaaRmdego qmedebasa da damdgar zians Soris. 57 ssk-s me-1000 muxli gamoiyeneba rogorc kerZo pirebis, aseve sajaro moxeleebisa Tu administraciuli organoebis mier miyenebuli zianis SemTxvevaSi. Sesabamisad, frangul administraciul samarTalSi arsebul bralis gareSe pasuxismgeblobas moicavs ssk-is me-1000 muxli. aqedan gamomdinareobs Teza, rom szak-is 208-e muxli gamoiyeneba administraciuli organos mier miyenebuli iseTi zianis SemTxvevaSi, romelsac ar moicavs ssk-s me-1000 muxli. Tumca, am mxriv saqarTvelos sasamarTlo praqtika jer-jerobiT Camoyalibebuli ar aris. Tumca, savaraudoa, rom qarTul sasamarTlo sinamdvileSic, iqneba tendencia bralis gareSe pasuxismgeblobis daviwroebisa. garda amisa, savsebiT logikuri da samarTliania administraciuli organos bralis gareSe pasuxismgebloba Tanamedrove faseulobebis da samarTlebrivi Teoriebis arsebobis fonze. sayovelTaod aris aRiarebuli rom garantirebulia saxelmwifos an misi organoebis mier miyenebuli zianis anazRaureba. szak-is 208-e muxlis imgvari ganmarteba, rom misi erT-erTi elementia brali da bralis gareSe pasuxismgeblobas exeba mxolod szak-is 209-e 57


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muxli, sxva Tu araferi ewinaaRmdegeba administraciuli organos pasuxismgeblobis institutis Tanamedrove gagebas.

3.1.2. samsaxurebrivi movaleoba meore umniSvnelovanesi elementi, rac ganasxvavebs administraciuli organos pasuxismgeblobis samoqalaqosamarTlebriv regulirebas administraciulsamarTlebrivi regulirebisagan aris is, rom szak-is 208-e muxli awesrigebs im SemTxvevbs, roca piri moqmedebs misTvis miniWebuli uflebamosilebis farglebSi anu is moqmedebs misTvis miniWebuli mandatis farglebSi. samsaxurebrivi uflebamosilebis ganxorcilebisas miyenebuli ziani anu e.w. samsaxurebrivi brali (faute de service) ganixileba bralis iseT formad, sadac sajaro piri pasuxismgebelia sistemuri bralisaTvis. 58 swored amiTac aris gamowveuli, rom szak-is 208-e muxlis mixedviT mesame pirisaTvis miyenebuli zianisaTvis administraciuli organo misi muSakis bralis miuxedavad aris pasuxismgebeli, radganac am SemTxvevaSi saxeze gvaqvs Sida da gare urTierTkavSiri. Sida urTierTkavSiri saxezea maSin, roca piri realurad moqmedebs administraciuli organos saxeliT misTvis miniWebuli uflebamosilebis farglebSi. gare urTierTkavSiri ki saxeze gvaqvs maSin, roca mesame pirTa mier muSakis qmedeba aRiqmeba, rogorc administraciuli organos qmedeba, magram realurad igi cdeba misTvis miniWebul uflebamosilebas. frangul samarTalSi e.w. “samsaxurebrivi bralis” (faute de service) cneba ar warmoadgens sakanonmdeblo mowesrigebis sagans da misi arsi ZiriTadad sasamarTlo praqtikiT Camoyalibda. 59 Tumca, aqve aRsaniSnavia, rom arc sasamarTloebs SeumuSavebiaT misi ganmarteba da TiToeul konkretul saqmesTan mimarTebiT iRebdnen gadawyvetilebebs. miuxedavad amisa, mravalwlovani gamocdilebis Sedegad, SesaZlebelia garkveuli tendenciebis gamovlena. samsaxurebrivi bralis arsi akademiuri diskusiis sagansac warmoadgens. bevri komentatori miiCnevs, rom samsaxurebrivi bralis

58

ix. sqolio # 2, gv. 21. 59

M. Paillet, “Faute de Service: Notion”, Fascicule 818 (1993, updated 1994), 8, Juris-Classeur Administratif, para. 65.

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safuZveli garkveuli saxis valdebulebis darRvevaa 60 . es mosazreba sasamarTlo praqtikiTac gamyarebulia. 61 franguli administraciuli samarTlis fuZemdeblur princips warmoadgens Teza, rom administracias aqvs kompetenturi administrirebis zogadi da yovlismomcveli valdebuleba. 62 imis gansazRvrisas, moxda Tu ara samsaxurebrivi movaleobis darRveva, xSirad yuradReba eqceva im faqts, dairRva Tu ara administrirebis normaluri standartebi. Sesabamisad, saxelmwifo manqanis arasaTanado xarisxiT funqcionireba TavisTavad utoldeba brals. 63 frangul administraciul iurisprudenciaSi SeiniSneba tendencia imisa, rom xSirad meti mniSvneloba eqceva Sedegs, vidre qmedebis gonivrulobas. ubralo faqti, rom raRac saTanadod ver warimarTa, SesaZloa gaxdes samsaxurebrivi bralis dadgenis safuZveli maSinac ki, Tu individualuri moxeleebi yvelafers akeTebdnen amgvari Sedegis Tavidan asacileblad da ukeT ver moiqceodnen. mag: erT-erT saqmeSi skolis direqciis pasuxismgebloba dadga kafeteriaSi moswavleebis mowamvlis gamo miuxedavad imisa, rom direqcia formalurad yvela standarts icavda da yvelafers akeTebda amgvari Sedegis Tavidan asacileblad. 64 tendencia administraciisaTvis pasuxismgeblobis dakisrebisas Sedegidan gamomdinare, miuxedavad im procesebis xarvezebis arseboba-ararsebobisa, rasac Sedegad mohyva ziani, araerTi komentatoris mier aris SemCneuli.65 samsaxurebrivi bralis ukeT gasagebad, aseve mxedvelobaSia misaRebi is garemoebebi, romlebsac sasamarTlo iTvaliswinebs. aseTebia zianis gansazRvradoba da konkretuli administraciuli warmoebis sirTuleebi.

3.2. szak-is 208-e muxlis moqmedebis sfero

60

iqve, §. 68. 61

CE 10 Dec. 1986, Adolphe [1986] Rec. 706. 62

G. Eorsi, “Liability for the Torts of Employees and Organs”, chap. 4 in A. Tunc (ed.), International Encyclopedia of Comparative Law, xi, Torts. 63

iqve. 64

CE 20 Oct. 1976, Alfortville [1976] Rec 1116. 65 ix. sqolio # 59, §. 72.

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szak-is 208-e muxli gamoiyeneba im SemTxvevaSi, roca saxeze gvaqvs Sida urTerTkavSiri. mimaCnia, rom kanonmdeblis amgvari midgoma savsebiT gamarTlebuli da gonivrulia. administraciuli samarTali, rogorc sajaro samarTlis umniSvnelovaneis dargi axdens mxolod im urTierTobebis reglamentacias, sadac piri moqmedebs marwmunebeli administraciuli organos mier miniWebuli uflebamosilebis Sesabamisad da am dros aRniSnuli qmedebis kanonierebaze pasuxismgebloba mTlianad ekisreba administraciul organos. Tu am qmedebis dros mesame pirs miadga ziani, miyenebuli ziani unda anazRaurdes administraciuli organos mier bralis miuxedavad. szak-is 208-e muxli warmoadgens uflebamosilebis normas administraciuli organos bralis gareSe pasuxismgeblobisaTvis. administraciuli organos bralis gareSe pasuxismgeblobis principi gamomdinareobs saqarTvelos konstituciis 42-e muxlis me-9 punqtidan, ramdenadac raime miTiTeba imaze, rom zianis anazRaureba SeiZleba damatebiTi pirobebiT gamoiricxos, saqarTvelos konstituciisaTvis ucnobia, rac kidev ufro amyarebs mosazrebas saxelmwifos pasuxsimgeblobis gamomricxavi garemoebebis saqarTvelos konstituciasTan Seusabamobis Taobaze.

IV. administraciuli organos pasuxismgeblobis dualisturi

mowesrigebis mizani da samarTlebrivi Sedegebi

1. kolizia Tu mizanmimarTuli mowesrigeba?! administraciuli samarTlis literaturaSi gatarebulia mosazreba imis Taobaze, rom ssk-is 1005-e muxli da szak-is 208-e muxli Seicavs koliziur danawesebs im nawilSi, rom ssk-is 1005-e muxlis mixedviT administraciuli organo pasuxs agebs mxolod ganzraxi an uxeSi gaufrTxileblobiT miyenebuli zianisaTvis, xolo szak-is 208-e muxlis Tanaxmad ki gaufrTxileblobis SemTxvevaSic. swored amitomac xarvezis aRmofxvris mizniT mizanSewonilad aris miCneuli maTi gaerTianeba Semdegi formulirebiT: `saxelmwifo administraciuli organos, agreTve misi Tanamdebobis piris an sxva saxelmwifo

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mosamsaxuris mier misi samsaxurebrivi movaleobis ganxorcielebisas miyenebuli zianisaTvis pasuxismgebelia saxelmwifo. ganzraxvis an uxeSi gaufrTxileblobis dros sajaro moxele saxelmwifosTan erTad solidarulad agebs pasuxs.”66 Cemi azriT, administraciuli organos pasuxismgeblobis administraciul-samarTlebrivi da samoqalaqo-samarTlebrivi reglamentacia ar qmnis normaTa kolizias, aramed saxeze gvaqvs dualisturi mowesrigeba. aRsaniSnavia isic, rom samecniero literaturaSi ukve ramdenime welia mimdinareobs msjeloba aRniSnul normaTa koliziurobis Sesaxeb, Tumca dRemde aranairi sakanonmdeblo cvlileba ar ganxorcilebeula da es im fonze, roca rogorc samoqalaqo kodeqsSi, aseve zogad administraciul kodeqsSi araerTi cvlileba Sevida, rac albaT im poziciis dasturic aris, rom aranair kolizias adgili ar aqvs da kanonmdebelma Segnebulad gadawyvita sakiTxis amgvari mowesrigeba

2. mowesrigebis miznebi da mizanSewoniloba

rodesac administraciuli organos dualistur mowesrigebaze vsaubrobT unda amovideT qarTuli sinamdvilidan, kerZod ki aRsaniSnavia is garemoeba, rom saqarTvelos samoqalaqo kodeqsi gacilebiT adre iqna miRebuli vidre zogadi administraciuli kodeqsi, swored amitomac administraciuli organos pasuxismgeblobis maregulirebeli normebi Setanil iqna samoqalaqo kodeqsSi (ramdenadac im etapze zogadi administraciuli kodeqsi ar arsebobda), rac kanonmdeblis Zalian didi damsaxurebaa im fonze, rom saqarTvelos, mravalsaukunovani aneqsiis Semdeg, saxelmwifoebriobis da miT umetes Tanamedrove samarTlebrivi saxelmwifoebriobis xanmokle istoria gaaCnda. am fonze administraciuli organos pasuxismgeblobis samoqalaqo-samarTlebrivi regulireba cxadia Zalian didi wingadadgmuli nabiji iyo. Tumca miuxedavad amisa, aSkaraa, rom administraciuli organos pasuxismgeblobis institutis samoqalqo-samarTlebrivi regulireba ver pasuxobda Tanamedrove moTxovnebs, Tundac imitom, rom qarTuli kanonmdebloba ar icnobda administraciuli organos bralis gareSe pasuxismgeblobas, qveyanaSi ar iyo ganviTarebuli sjaro mmarTvelobis principebi da amitomac saWiro gaxda zogadi administraciuli kodeqsis SemuSaveba, romelmac safuZveli daudo Tanamdrove qarTul administraciul samarTals.

66


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zogadma administraciulma kodeqsma SemoiRo aseve bralis gareSe pasuxismgeblobis instituti da axleburad daaregulira administraciuli organos pasuxismgeblobis principebi. magram ramdenadac administraciuli organos pasuxismgeblobis maregulirebel normebs ukve Seicavda am droisaTvis moqmedi samoqalqo kodeqsi, kanonmdebelma gaakeTa daTqma samoqalaqo kodesze, xolo is rac ar iyo gaTvaliswinebuli samoqalaqo kodeqsiT, damatebiT moawesriga zogadi administraciuli kodeqsis normebiT. Cemi azriT, swored am garemoebebma ganapiroba administraciuli organos pasuxismgeblobis dualisturi mowesrigeba, Tumca ramdenad mizanSewonili iyo amgvari mowesrigeba es calke msjelobis sagania.

rac Seexeba mizanSewonilobis sakiTxs, umjobeisa rom administraciuli organos pasuxismgeblobis momwesrigebeli normebi erTianad iyos Tavmoyrili zogad administraciul kodeqsSi da ar iyos gafantuli sxvadasva sakanonmdeblo aqtebSi. aRniSnuli midgoma gaziarebulia axali zogadi administraciuli kodeqsis avtorebis mierac da axali zogadi administraciuli kodeqsis proeqti Seicavs administraciuli organos pasuxismgeblobis calke Tavs, sadac gacilebiT detalurad aris reglamentirebuli administraciuli organos pasuxismgeblobis principebi.67

3. dualisturi mowesrigebis samarTlebrivi Sedegebi

administraciuli organos pasuxsimgeblobis institutis dualisturi (samoqalaqo samarTlebrivi da administraciul samarTlebrivi) mowesrigebis samarTlebrivi Sedegi asaxvas poulobs zianis anazRaurebis sakiTxSi. kerZod ki samsaxurebrivi uflebamosilebis ganzrax an uxeSi gaufrTxileblobiT darRvevis Sedegad miyenebuli zianisaTvis piri administraciul organosTan erTd solidarulad agebs pasuxs, xolo samsaxurebrivi uflebamosilebis farglebSi moqmedebis Sedegad miyenebuli zianisaTvis pasuxismgebloba mTlianad administraciul organos ekisreba (aris kidev erTi SemTxveva, romelic arsebuli kanonmdeblobidan pirdapir ar gamomdinareobs, magram normis teleologiuri reduqciis meTodiT ganmartebis Sedegad SegviZlia vivaraudoT – samsaxurebrivi uflebamosilebis Cveulebrivi gaufrTxileblobiT darRveviT gamowveuli zianisaTvis pasuxismgebloba aseve mTlianad ekisreba administraciul organos).

67

dawvrilebiT ixileT V Tavi.

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frangul administraciul samarTalSi gavrcelebuli Sexedulebis Tanaxmad administraciuli organos mosamsaxure e.w. `samsaxurebrivi bralisaTvis” (faute de service) pasuxs agebs administraciuli sasamarTlos winaSe, xolo e.w. `pirovnuli bralisaTvis” (faute

personnelle) samoqalaqo sasamarTlos winaSe. 68 Tumca msgavsi midgoma ar arsebobs qarTul sinamdvileSi, ramdenadac administraciuli organos mier miyenebuli zianisaTvis pasuxismgeblobis sakiTxs ganixilaven saerTo sasamarTloebi administraciuli samarTalwarmoebis wesiT. saqarTvelos zogadi administraciuli kodeqsis administraciuli organos pasuxismgeblobis maregulirebeli Tavi Seicavs daTqmas saqarTvelos samoqalaqo kodeqsze, garda amisa saqarTvelos administraciuli saproceso kodeqsic aseve daTqmas akeTebs samoqalaqo saproceso kodeqsze, Sesabamisad is mijna rac am kuTxiT frangul samarTalSi gvaqvs, aseTi mkveTri ar aris (an saerTod ar aris) qarTul sinamdvileSi.

V. dagegmili sakanonmdeblo cvlilebebi

administraciuli organos pasuxismgeblobis institutis da sakiTxis aqtualobis dasturia is sakanonmdeblo cvlilebebi, romlebic uaxloes momavalSi igegmeba. Teoretikosi da praqtikosi administrativistebis mier erToblivad SemuSavda axali zogadi administraciuli kodeqsis proeqti, sadac sruliad axleburad aris mowesrigebuli administraciuli organos pasuxismgeblobis sakiTxi.

1. administraciuli organos pasuxismgeblobis axleburi

mowesrigeba dagegmili sakanonmdeblo cvlilebebiT administraciuli organos pasuxismgeblobis axleburi mowesrigeba gamoixateba rogorc wminda formalur, axlebur sistematizaciaSi, aseve Sinaarsobriv cvlilebebSi. 68


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wminda sistemuri kuTxiT, aRsaniSnavia is, rom zogadi administraciuli kodeqsis proeqtSi, moqmedi kodeqsisagan gansxvavebiT administraciuli organos pasuxismgeblobis instituts exeba eqvsi muxli, sadac ufro detalurad aris reglamentirebuli administraciuli oraganos pasuxismgeblobis sakiTxebi. proeqtis mixedviT administraciuli organos pasuxismgeblobis instituti mTlianad aris mowesrigebuli zogadi administraciuli kodeqsiT da is ar Seicavs blanketur normebs aRniSnuli institutis amavdroulad samoaqlaqosamarTlebrivi regulirebis Taobaze. rac Seexeba Sinaarsobriv cvlilebas, aRniSnuli proeqtiT gaizarda administraciuli organos pasuxismgebloba braleuli qmedebisaTvis da amave dros Semcirda administraciuli organos bralis gareSe pasuxismgeblobis SemTxvevebi.69

1.1. samsaxurebrivi valdebulebebis braleuli darRveva axali zogadi administraciuli kodeqsis proeqtis mixedviT `Tu saxelmwifo mosamsaxure ganzrax an gaufrTxileblobiT arRvevs Tavis samsaxurebriv movaleobas sxva piris mimarT, maSin saxelmwifo an is organo, romelSic mosamsaxure muSaobs, valdebulia aanazRauros damdgari ziani”. 70 am normis danawesidan gamomdinare mosamsaxure unda arRvevdes Tavis samsaxurebriv movaleobas, rom dadges administraciuli organos pasuxismgeblobis sakiTxi. aRniSnuli midgoma niSnavs imas, rom proeqtis avtorebma gadawyvites administraciuli organos pasuxismgeblobis maregulirebeli normebis sistematizacia erT sakanonmdeblo aqtSi da administraciuli organos pasuxismgeblobis maregulirebeli samoqalaqosamarTlebrivi normebic gadmotanil iqna zogad administraciul kodeqsSi. aqve aRsaniSnavia isic, rom administraciul kodeqsSive gaiwera TviT administraciul organosa da mis TanamSromelTa Soris urTierTobebi. saubaria imaze, rom zogadi administraciuli kodeqsiTve daregulirdeba Tu ra SemTxvevaSi da rogor moxdeba moxelisagan regresis wesiT, zianis asanazRaureblad gaweuli danaxarjebis amoReba.71

69

ix. winamdebare naSromis V Tavis 1.2.2. qveTavi. 70

saqarTvelos zogadi administraciuli kodeqsi, proeqti, muxli 155. 71

ix. sqolio # 70, muxli 155, punqti me-4.

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1.1.1. bralis formebi

zogadi administraciuli kodeqsis axali proeqtis mixedviT zianis anazRaurebisaTvis saWiroa rom saxeze iyos braleuli qmedeba (bralis gareSe pasuxismgeblobas calke exeba proeqtis sxva muxli), kerZod ki saubaria bralis orive formaze, rogorc ganzraxvaze, aseve gufrTxileblobaze. aRniSnuli midgomiT gafarTovda administraciuli organos pasuxismgeblobis sferoc, ase magaliTad Tu ssk-is 1005-e muxlis mixedviT administraciuli organo pasuxs agebda mxolod ganzraxvis an uxeSi gaufrTxileblobis dros, proeqtis mixedviT administraciuli organo bralis orive formis (rac aseve moicavs gaufrTxileblobis orive formas) dros aris pasuxismgebeli, rac cxadia mniSvnelovani wingadadgmuli da progresuli nabijia administraciuli organos pasuxismgeblobis mowesrigebis gzaze.

1.2. pasuxismgebloba bralis gareSe damdgari zianisaTvis

axal proeqtSi calke muxli eTmoba bralis gareSe pasuxismgeblobas. moqmedi administraciuli kodeqsi msgavs muxls ar Seicavs im ubralo mizezis gamo, rom szak-is 208-e muxli Tavisi formulirebidan gamomdinare isedac aRiarebs bralis gareSe pasuxismgeblobas, Sesabamisad kanonmdebels ar sWirdeboda, rom bralis gareSe pasuxismgebloba calke muxlad gamoeyo. proeqtis mixedviT ki marTalia aRiarebulia bralis gareSe pasuxismgebloba, magram misi farglebi Semcirebulia da mxolod calkeul konkretul SemTxvevebSi aris garantirebuli bralis gareSe qmedebiT miyenebuli zianis anazRaureba, kerZod ki es exeba im SemTxvevebs, Tu ziani miadgeba piris qonebriv an iseT araqonebriv uflebebs, rogoricaa sicoxlisa da janmrTelobis ufleba.72

72

iqve, muxli 157.

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1.2.1. sajaro samarTlebrivi uflebamosilebis

Gganxorcieleba bralis gareSe pasuxismgeblobis aucilebeli piroba proeqtis mixedviT (iseve, rogorc moqmedi szak-is 208-e muxlis mixedviT) aris sajaro-samarTlebrivi uflebamosilebis farglebSi moqmedeba: `Tu administraciuli organo an adgilobrivi TviTmmarTvelobis organo sajaro-samarTlebrivi uflebamosilebis ganxorcielebisas ukanonod xelyofs piris konstituciiT dacul qonebriv an araqonebriv – sicocxlis an janmrTelobis uflebas, saxelmwifo an adgilobrivi TviTmmarTvelobis organo valdebulia aanazRauros aseTi qmedebiT gamowveuli materialuri ziani”.73 aRniSnul muxlSi saubaria administraciuli organos mier miyenebul zianze, magram cxadia ziani yvela SemTxvevaSi dgeba fizikuri piris qmedebis (umoqmedobis) Sedegad, ramdenadac iuridiuli piri aris fiqcia da nebismier SemTxvevaSi misi saxeliT moqmedebs fizikuri piri, ramdenadac administraciuli organo/iuridiuli piri rogorc aseTi qmeduunaroa da misTvis moqmedeben mxolod da mxolod fizikuri pirebi da am fizikur pirTa qmedebebi SemdgomSi Seeracxeba administraciul organoebs.74 aqedan gamomdinare, rodesac saubaria administraciuli organos mier sajaro-samarTlebrivi uflebamosilebis ganxorcilebisas miyenebul zianze, arsebiTad igulisxmeba muSakis qmedeba samsaxurebrivi uflebamosilebis farglebSi. Sesabamisad bralis gareSe pasuxismgeblobis erT-erTi aucilebeli elementia samsaxurebrivi uflebamosilebis farglebSi moqmedeba.

1.2.2. qonebrivi an araqonebrivi uflebebis xelyofa bralis gareSe pasuxismgeblobis meore aucilebeli elementi aris is rom ziani miadges `piris konstituciiT dacul qonebriv an araqonebriv – sicocxlis an janmrTelobis uflebas”. 75 anu zianis obieqti aris SezRuduli da igi moicavs mxolod iseT fundamentur

73

ix. sqolio # 70, muxli 157. 74

ix. sqolio # 23. 75

ix. sqolio # 70, muxli 157, punqti 1-li.

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uflbebs, rogoric aris qonebrivi uflebebi, aseve sicocxle da janmrTeloba. magram araferi naTqvami Tundac iseT umniSvnelovanes uflebaze, rogoric aris pativi an Rirseba. magaliTad, aviRoT aseTi SemTxveva: finansTa saministros Semosavlebis samsaxuris muSakma, romelic axorcielebda samsaxurebriv uflebamosilebas, samsaxurebrivi Semowmebis dasrulebis Semdeg sajarod ganacxada, rom konkretuli sawarmos direqtoris mxridan adgili hqonda Semosavlebis dafarvas da sxva ukanono qmedebebs, Tumca SemdegSi aRmoCnda, rom es faqtebi simarTles ar Seesabameboda. aRniSnul SemTxvevaSi, saqarTvelos zogadi administraciuli kodeqsis proeqtis mixedviT aRniSnuli piri saministrosgan ver moiTxovs moraluri zianis anazRaurebas, ramdenadac mas, am konkretuli qmedebiT ar ganucdia materialuri zarali,Aanu administraciul samarTlebrivi regulirebis gareSe rCeba aRniSnuli sakiTxi da pirs uflebebis dasacavad mouwevs mimarTos samoqalaqosamarTlebriv normebs, rac gaugebaria im fonze, roca axali zogadi administraciuli kodeqsi gezs iRebs administraciuli organos mier pasuxismgeblobis regulirebis unifikaciisaken.

2. cvlilebebis mizanSewoniloba rogorc analizma aCvena administraciuli organos pasuxismgeblobis axleburi mowesrigeba axali zogadi administraciuli kodeqsis mixedviT, Seicavs rogorc pozitiur, aseve negatiur momentebs, kerZod ki:

1. misasalmebeli da progresuli nabijia administraciuli organos pasuximgeblobis maregulirebeli normebis erT sakanonmdeblo aqtSi Tavmoyra da sistematizacia. aRniSnuli qmedeba mniSvnelovania, ara marto wminda sistemuri TvalsazrisiT, aramed uaRresad mniSvnelovania is, rom blanketuri normebis gauqmebiT aRniSnuli instistutis maregulirebeli principebi ganisazRvra mxolod zogadi administraciuli kodeqsiT da normaSemfardebels aRar mouwevs samoqalaqo samarTlebrivi normebisa da principebis gamoyeneba, rac xSirad aRniSnuli principebis aRrevas iwvevda. proeqti Seicavs iseT normebs, romelic aregulirebs urTierTobebs ara marto mesame pirsa da administraciul organos Soris, rogorc es moqmedi zogadi administraciuli kodeqsis mixedviT aris, aramed aseve awesrigebs urTierTobebs Tavad administraciul organosa da sajaro moxeles Soris,

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kerZod ki awesrigebs SemTxveves Tu rodis SeuZlia administraciul organos sajaro moxelisagan regresis wesiT moiTxovos mesame pirisaTvis miyenebuli zianis asanazRaureblad gaRebuli saxsrebi.76 mniSvnelovania isic, rom proeqtis mixedviT 77 , ssk-is 1005-e muxlisagan gansxvavebiT administraciul organos pasuxismgebloba ekisreba miuxedavad imisa, misi moxele samsaxurebriv uflebamosilebas ganzrax daarRvevs Tu gaufrTxileblobiT (moicavs gaufrTxileblobis orive formas).

2. Tumca garda aRniSnuli pozitivisa, proeqti Seicavs garkveul negatiur norma-principebsac, kerZod ki gaumarTleblad mimaCnia bralis gareSe pasuxismgeblobis mxolod qonebrivi da sicocxlisa da janmrTelobisaTvis miyenebuli zianis anazRaurebiT SemosazRvra, miT ufro rom pirovnebis pativisa da Rirsebis, agreTve saqmiani reputaciis dacva unda moxdes zianis mimyeneblis ara marto braleuli moqmedebiT, aseve bralis miuxedavad. 78 garda amisa, aRniSnuli midgoma, sxva Tu araferi, ewinaaRmdegeba saqarTvelos konstituciis 42-e muls, romelic Seicavs ufro farTo danawess da uzrunvelyos nebismieri saxis zianis anazRaurebas. aRniSnuli konstituciuri principi ki, rogorc zemoT aRiniSna aris uSualod moqmedi norma-principi.

VI.Ddaskvna

yovelive zemoaRniSnulidan gamomdinare, daskvnis saxiT unda iTqvas, rom saqarTveloSi saxeze gvaqvs administraciuli organos pasuxismgeblobis dualisturi mowesrigeba, kerZod ki adminitraciuli organos pasuxismgeblobis instituts da mis principebs awesrigebs rogorc saqarTvelos samoqalaqo kodeqsi, aseve saqarTvelos zogadi adminitraciuli kodeqsi.

saqarTvelos samoqalaqo kodeqsi da saqarTvelos zogadi administraciuli kodeqsi awesrigeben administraciuli organos

76

ix. sqolio # 70, muxli 155, punqti me-4. 77

iqve, muxli 155, punqti 1-li. 78


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pasuxismgeblobis gansxvavebul aspeqtebs da Sesabamisad ar arsebobs aranairi kolizia saqarTvelos samoqalaqo kodeqsis 1005-e da saqarTvelos zogadi administraciuli kodeqsis 208-e muxlebs Soris. ufro metic, ar arsebobs kolizia TviT samoqalaqo kodeqsis 997-e da 1005-e muxlebs Soris da Sesabamisad ar arsebobs aranairi uflebaTa konkurencia aRniSnul muxlebs Soris.79

saqarTvelos samoqalaqo kodeqsis 1005-e muxli saqarTvelos zogadi administraciuli kodeqsis 208-e muxlisagan gansxvavdeba ori elementis mixedviT. pirveli gansxvaveba, rac arsebobs ssk-is 1005-e da szak-is 208-e muxls Soris aris is, rom 1005-e muxli exeba iseT SemTxvevebs, roca administraciuli organos muSaki moqmedebs samsaxurebrivi uflebamosilebis darRveviT, samsaxurebrivi uflebamosilebis farglebs gareT. 208-e muxli ki piriqiT, exeba iseT SemTxvevebs, rodesac administraciuli organos muSaki ar scdeba misi uflebamosilebis farglebs. amasTanave, aucileblad unda gvaxsovdes, rom termini `samsaxurebrivi movaleobis ganxorcielebisas” srulebiTac ar gulisxmobs drois garkveul qronologiur monakveTs, vTqvaT 9:00-dan 18:00 saaTamde, roca piri asrulebs Tavis samsaxurebriv movaleobebs, aramed igi gulisxmobs SemTxvevas (miuxedavad droisa) roca piri moqmedebs samsaxurebrivi uflebamosilebis Sesabamisad da roca misi esa Tu is qmedeba gamomdinareobs samsaxurebrivi valdebulebebidan.

meore gansxvaveba, romelic arsebobs ssk-is 1005-e da szak-is 208-e muxlebs Soris aris is, rom pirvel SemTxvevaSi (ssk-is 1005-e muxlis regulirebis sfero) pasuxismgeblobis safuZvelia mxolod braleuli qmedeba, xolo meore SemTxvevaSi (szak-is 208-e muxlis regulirebis sfero) pasuxismgebloba dgeba arabraleuli qmedebisTvisac da ganmsazRvreli am SemTxvevaSi aris is, rom saxeze gvqondes damdgari realuri ziani.

gansxvavebulia saqarTvelos samoqalaqo kodeqsis 997-e da 1005-e muxlebis regulirebis sferoebic. 997-e muxlis formulirebidan da Sinaarsidan gamomdinare, aRniSnuli muxli exeba SemTxvevebs, roca piri Tavisi samsaxurebrivi movaleobis ganxorcielebisas marTlsawinaaRmdego moqmedebiT zians ayenebs sxva, mesame pirs, anu am SemTxvevaSi piri ar arRvevs Tavis samsaxurebriv uflebamosilebas, Tumca Mmiuxedavad amisa, misi qmedeba SesaZloa iyos marTlsawinaaRmdego da aRniSnuli marTlsawinaaRmdego (magram samsaxurebrivi uflebamosilebis ganxorcielebisas) qmedebiT ziani miadges sxva pirs. aRniSnuli konstruqciis TvalsaCino magaliTad gamodgeba `sajaro samsaxuris Sesaxeb” saqarTvelos kanonis 55-e da 56-e muxlebi, romelTa mixedviTac

79

Sead. sqolio # 23.

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sajaro mosamsaxure valdebulia Seasrulos zemdgomis davaleba (samsaxurebrivi uflebamosileba) Tundac arsebobdes eWvi aRniSnuli qmedebis kanonierebis Taobaze. aqedan gamomdinare, Tu sajaro mosamsaxure Seasrulebs Tavisi zemdgomis marTsawinaarmdego davalebas (samsaxurebrivi uflebamosilebis farglebSi ganxorcielebuli qmedeba) da amiT is zians miayenebs sxva pirs, cxadia msgavsi SemTxveva srulad eqceva ssk-is 997-e muxlis sferoSi da gaumarTlebelia am dros ssk-is 1005-e muxlis gamoyeneba. 997-e muxliT regulirebul SemTxvevaSi cxadia piri moqmedebs samsaxurebrivi uflebamosilebis zedmiwevniT dacviT, anu am SemTxvevaSi moqmedebs TviT administraciuli organo da Sesabamisad pasuxismgeblobac mxolod da mxolod administraciul organos ekisreba.

gansxvavebulia ssk-is 1005-e muxlis regulirebis sfero, ramdenadac am dros piri (admistraciuli organos muSaki) moqmedebs samsaxurebrivi uflebamosilebis darRveviT da am SemTxvevaSi administraciuli organo pasuxs agebs mxolod im Tanamedrove midgomidan gamomdinare, romlis Tanaxmadac administraciulma organom Tavadve unda ikisros misi muSakebis SerCevisa da seleqciis riski. garda amisa, am SemTxvevaSi mniSvnelovania isic, rom samsaxurebrivi uflebamosilebis darRvevisas piri ar yofila mandatirebuli aRniSnuli qmedebis gansaxorcieleblad, Tumca igi gareSe mesame pirTa mier aRiqmeboda administraciuli organos sruluflebian warmomadgenlad. `moqalqeebi emorCilebian sajaro moxeleTa moTxovnebs ara maTi piradi avtoritetis gamo, aramed imitom, rom isini warmoadgenen saxelmwifos/adgilobbriv TviTmmarTvelobas.” 80 swored aqedan gamomdinare, administraciuli organo valdebulia aanazRauros miyenebuli ziani.

is faqti, rom ssk-is 997-e muxlis SemTxvevaSi piri moqmedebs samsaxurebrivi uflebamosilebis farglebSi, xolo ssk-is 1005-e muxlis SemTxvevaSi ki piriqiT, samsaxurebrivi uflebamosilebis darRveviT, asaxvas hpovebs aRniSnuli muxlebis SinaarsSi arsebul kidev erT gansxvavebaSi. kerZod ki, ramdenadac 997-e muxlis SemTxvevaSi piri moqmedebs samsaxurebrivi uflebamosilebis farglebSi (mkacrad icavs samsaxurebriv movaleobas) damdgar zianze upirobod pasuxismgebelia administraciuli organo. ssk-is 1005-e muxlis SemTxvevaSi ki, ramdenadac piri moqmedebs samsaxurebrivi uflebamosilebis darRveviT, zianis anazRaurebis subieqtebic garkveulwilad diferencirebulia bralis formebis mixedviT, ase magaliTad `Cveulebrivi” gaufrTxileblobis SemTxvevaSi81 zianis anazraureba ekisreba administraciul organos,

80

ix. sqolio # 1, gv. 365. 81

ix. winamdebare naSromis III Tavis 2.3.4. qveTavi.

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xolo ganzraxvis an uxeSi gaufrTxileblobis SemTxvevaSi ki piri saxelmwifosTan erTad solidarulad agebs pasuxs.

gansxvavebulia Tavad saqarTvelos samoqalqo kodeqsis 997-e da saqarTvelos zogadi administraciuli kodeqsis 208-e muxlebic. miuxedavad imisa, rom orive maTgani exeba samsaxurebrivi uflebamosilebis ganxorcielebisas miyenebuli zianis anazRaurebas, am or muxls Soris gansxvaveba mainc arsebobs da isini koliziur normebs ar warmoadgenen. gansxvaveba ki mdgomareobs imaSi, rom ssk-is 997-e muxli exeba marTsawinaaRmdego qmedebis Sedegad damdgari zianis anazRaurebas anu 997-e muxlis SemadgenlobisaTvis aucilebeli elementi aris marTsawinaaRmdego qmedeba da Tu piri marTlzomieri qmedebiT miayenebs sxva pirs zians, maSin ssk-is 997-e muxli ar gamoiyeneba. vTqvaT rodesac samarTaldamcavi organos warmomadgenlebi damnaSvis ayvanis dros cecxlsasroli iaraRiT daazianeben mezoblis qonebas. am SemTxvevaSi cxadia samarTaldamcavebi moqmedebdnen marTlzomierad da aseve moqmedebdnen samsaxurebrivi uflebamosilebis farglebSi, magram ssk-is 997-e muxlis danawesidan gamomdinare dazaralebuli mesame piri ver moiTxovs zianis anazraurebas. zianis anazraurebas es piri ver moiTxovs verc ssk-is 1005-e muxlis Sesabamisad, ramdenadac 1005-e muxlis pirdapiri moTxovnaa, rom ziani damdgari unda iyos samsaxurebrivi movaleobis (uflebamosilebis) darRvevis Sedegad. aRniSnuli sakanonmdeblo vakuumi rom Sevsebuliyo da yvelasTvis yofiliyo garantirebuli ukanonod (ganxiluli SemTxveva ki cxadia damnaSavis ayvanis operacia iyo marTlzomieri, magram mesame pirisaTvis miyenebuli ziani iyo ukanono) miyenebuli zianis anazRaureba, miRebul iqna saqarTvelos zogadi administraciuli kodeqsi, romelmac Seavso aRniSnuli sakanonmdeblo vakuumi da safuZveli daudo administraciuli organos pasuxismgeblobis Tanamedrove instituts.

saqarTvelos zogadi administraciuli kodeqsis 208-e muxlis mixedviT pasuxismgebloba dgeba `samsaxurebrivi movaleobis ganxorcielebisas miyenebuli zianisaTvis”, anu szak-is 208-e muxlis gamoyenebisaTvis saWiroa realurad damdgari ziani da samsaxurebrivi uflebamosilebis farglebSi moqmedeba. sxva damatebiT pirobebs zianis anazRaurebisaTvis szak-is 208-e muxli ar Seicavs. swored aqedan gamomdinare saqarTvelos samoqalaqo kodeqsis 997-e muxli da saqarTvelos zogadi administraciuli kodeqsis 208-e muxli gansxvavebul SemTxvevebs awesrigeben da maT Soris aranairi kolizia ar arsebobs.

ssk-is 997-e da szak-is 208-e muxlebs Soris arsebuli zemoaRniSnuli gansxvavebidan gamomdinare, arsebobs kidev erTi specifiuri niSani, romelic axasiaTebs szak-is 208-e muxls da

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romliTac aRniSnuli muxli gansxvavdeba ara marto ssk-is 997-e, aramed ssk-is 1005-e muxlisganac. kerZod ki es ganmasxvabebeli niSani aris brali. szak-is 208-e muxlis danawesi ar Seicavs raime daTqmas bralze. im fonze, roca rogorc evropuli (romanul-germanuli), ise saerTo samarTali icnobs da aRiarebs bralis gareSe pasuxismgeblobas, szak-is 208-e muxlis formulireba niSnavs, rom igi aRiarebs bralis gareSe pasuxismgeblobas. aRniSnul mosazrebas amtkicebs isic, rom administraciuli organos bralis gareSe pasuxismgeblobis principi isedac arsebobs qarTul administraciul samarTalSi saqarTvelos zogadi administraciuli kodeqsis 207-e muxlidan gamomdinare. szak-is 207-e muxlis mixedviT `administraciuli organos mier miyenebuli zianis anazraurebisas gamoiyeneba saqarTvelos samoqalaqo kodeqsiT dadgenili wesi.” saqarTvelos samoqalaqo kodeqsi ki, rogorc cnobilia aRiarebs bralis gareSe pasuximgeblobas.82

im fonze, roca szak-is 207-e muxlis danawesidan gamomdinare qarTuli administraciuli samarTali isedac aRiarebs bralis gareSe pasuxismgeblobas, gasakviri araferia im TezaSi, rom szak-is 208-e muxli cnobs bralis gareSe pasuxismgeblobas, mxolod igi aRiarebs bralis gareSe pasuxismgeblobas zogadad da ara marto im SemTxvevebSi, rac saqarTvelos samoqalaqo kodeqsiT aris gaTvaliswinebuli, vinaidan samoqalaqo kodesiT gaTvaliswinebul bralis gareSe pasuxismgeblobis SemTxvevebs, rogorc zemoT aRiniSna isedac aRiarebs szak-is 207-e muxli. szak-is 208-e muxli arsebobs imisaTvis, rom igi damatebiT, principis doneze aRiarebs bralis gareSe pasuxismgeblobas administraciul samarTalSi da igi ar Semoifargleba mxolod da mxolod samoqalaqo kodeqsiT gaTvaliswinebuli bralis gareSe pasuxismgeblobis SemTxvevebiT.

zemoaRniSnuli msjelobidan gamomdinareobs winamdebare naSromis saboloo Teza, rom saqarTveloSi kanonmdebelma administraciuli organos pasuxismgebloba moawesriga rogorc samoqalaqo kodeqsis, aseve saqarTvelos zogadi administraciuli kodeqsis meSveobiT anu kanonmdebelma dauSva aRniSnuli institutis dualisturi mowesrigeba. sxva sakiTxia ramdenad mizanSewonilia amgvari mowesrigeba (aRniSnuli sakiTxi ganxilulia zeviT) Tundac igive wminda sistemuri TvalsazrisiT, Tumca faqtia isic, rom rogorc aRniSnuli normebis siRrmiseulma analizma cxadyo, qarTveli kanonmdeblis amgvari midgoma uflebis dacvis kuTxiT realurad aranair problemas ar qmnis praqtikaSi, ramdenac saqarTvelos samoqalqo kodeqsis 997-e, 1005-e da saqarTvelos zoagadi administraciuli kodeqsis 208-e muxlebs gamoyenebis gansxvavebuli sferoebi aqvT da isini erTi instistutis (administraciuli

82

ix. sqolio # 44.

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organos pasuxismgeblobis instituti) sxvadasxva aspeqtebs awesrigeben, riTac aRniSnuli muxlebi araTu ewinaaRmdegebian erTmaneTs, aramed piriqiT swored maTi erToblioba qmnis administraciuli organos pasuxismgeblobis Tanamderove standarts, romelic, qarTveli kanonmdeblis sasaxelod unda iTqvas, araTu CamorCeba aRniSnuli institutis regulirebisas msoflios wamyvani qveynebis mier aRiarebul midgomebs, aramed zog SemTxvevaSi ufro met garantiebs Seicavs darRveuli uflebis aRdgenisaTvis. Tumca, aRniSnuli institutis ganviTarebaSi did rols TamaSobs sasamarTlo praqtika, Cvens SemTxvevaSi ki bundovani da gaurkvevelia, Tu zemoaRniSnuli normebis Sefardebis ra standartebi iqneba damkvidrebuli saqarTvelos sasamarTloebis mier.

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g a m o y e n e b u l i l i t e r a t u r a:

I) literatura:

1. z. adeiSvili, g. vinteri, d. qitoSvili `saqarTvelos zogadi

administraciuli kodeqsis komentari” Tbilisi, 2002w.

2. z. adeiSvili, q. vardiaSvili, l. izoria, n. kalandaZe,

m. kopaleiSvili, n. sxirtlaZe, p. turava, d. qitoSvili `zogadi

administraciuli samarTlis saxelmZRvanelo”, Tbilisi, 2005w.

3. p. turava, i. xarSilaZe `administraciuli warmoeba”, Tbilisi,

2006 w.

4. k. kublaSvili, `ZiriTadi uflebebi”, Tbilisi, 2003w.

5. saqarTvelos samoqalaqo kodeqsis komentari, wigni IV, tomi II,

Tbilisi, 2001w.

6. saqarTvelos samoqalaqo kodeqsis komentari, wigni I, Tbilisi,

2002w.

7. saqarTvelos samoqalaqo kodeqsis komentari, wigni III, Tbilisi,

2001w.

8. Duncan Fairgrieve, ``State liability, a comperative law study”, Oxford University Press,

2003.

9. Peter H. Schuck ``Suing government, citizen remedies for official wrongs”, Yale

University Press, 1983.

10. G. Eorsi, “Liability for the Torts of Employees and Organs”, chap. 4 in A. Tunc (ed.),

International Encyclopedia of Comparative Law, xi, Torts.

II) publikaciebi:

1. Robert R. Peebles, Jr, Governmental tort liability in Louisiana: a response to

Profesor Robertson and a call for more study, Tulane Law Review, May, 1991

(Citation Text: 65 TLNLR 1055).

2. M. Paillet, “Faute de Service: Notion”, Fascicule 818 (1993, updated 1994), 8,

Juris-Classeur Administratif

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III) saleqcio kursebi:

1. d. ToraZe, saleqcio kursi – sazogadoebrivi marTlwesrigis samarTali, Tema sazogadoebrivi marTlwesrigis dacavi organoebis pasuxismgebloba.

IV) sasamarTlo gadawyvetilebebi:

1. saqarTvelos uzenaesi sasamarTlos administraciul da sxva kategoriis saqmeTa palatis ganCineba #bs-782-369 (k-05), q. Tbilisi, 2005 wlis 20 oqtomberi.

2. Abbot v. Sullivan [1952] 1 KB 189, 215. 3. Dunlop v. Woollahra Municipal Council [1982] AC 158, 172. 4. Lonrho Plc v. Tebbit [1991] 4 All ER 973, 980 (High Court, upheld in CA, [1992] 4

All ER 280). 5. R v. Knowsley MBC, ex p Maguire, The Times, 26 June 1992. 6. R. v Home Secretary ex p Dew [1987] 1 WLR 881, 894-5 at al. 7. CE 7 June 1940, Vuldy [1940] Rec. 197. 8. CE 4 Nov. 1992, Lorgues, RDP 1993.261 (procedural illegality. 9. CAA Lyon 9 Dec. 1992, Gire [1992] Rec 1296 (erreur manifeste d’appreciation). 10. CE 3 Apr. 1992, SARL Nouvelles Frontieres, RDP 1993.262 (error of law). 11. CE 29 June 1990, Societe CERP [1990] Rec. 193. 12. CE 28 Mar. 1919, Regnault-Desroziers [1919] Rec 329. 13. CE 10 Dec. 1986, Adolphe [1986] Rec. 706. 14. CE 20 Oct. 1976, Alfortville [1976] Rec 1116.

V) normatiuli masala:

1. saqarTvelos parlamentis 1997 wlis 26 ivnisis kanoni #786 “saqarTvelos samoqalaqo kodeqsi”, (2010 wlis 2 seqtembris mdgomareobiT).

2. saqarTvelos parlamentis 1999 wlis 25 ivnisis kanoni #2181 “saqarTvelos zogadi administraciuli kodeqsi”, (2010 wlis 2 seqtembris mdgomareobiT).

3. saqarTvelos parlamentis 1999 wlis 22 ivlisis kanoni #2287 “sisxlis samarTlis kodeqsi” (2010 wlis 2 seqtembris mdgomareobiT).

4. saqarTvelos parlamentis 1997 wlis 31 oqtombris kanoni #1022 `sajaro samsaxuris Sesaxeb” (2010 wlis 2 seqtembris mdgomareobiT).

5. saqarTvelos parlamentis 1997 wlis 17 seqtembris kanoni #860 “samxedro valdebulebisa da samxedro samsaxuris Sesaxeb” (2010 wlis 2 seqtembris mdgomareobiT).

6. saqarTvelos zogadi administraciuli kodeqsi, proeqti.

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