{
  "id": "nexus-sen-1-0007-473953",
  "citation": "Res. 09928-2010 Sala Constitucional",
  "section": "nexus_decisions",
  "doc_type": "constitutional_decision",
  "title_es": "Inconstitucionalidad de la remisión de nulidades de actos administrativos de empleo público a la vía laboral",
  "title_en": "Unconstitutionality of referring public-employment nullity actions to the labor courts",
  "summary_es": "La Sala Constitucional acumuló dos acciones de inconstitucionalidad contra el artículo 3, inciso a), del Código Procesal Contencioso-Administrativo y contra la jurisprudencia de la Sala Primera que, basada en la antigua ley, remitía sistemáticamente a la jurisdicción laboral las pretensiones de nulidad de actos administrativos surgidos en relaciones de empleo público. El Tribunal determinó que el artículo 49 constitucional reserva exclusivamente a la jurisdicción contencioso-administrativa la fiscalización de la legalidad de la función administrativa, incluidas las conductas que se produzcan en el marco de una relación estatutaria. Estimó que la exclusión radical del CPCA vacía de contenido esa garantía institucional, por lo que lo declaró inconstitucional. También declaró inconstitucional la jurisprudencia que calificaba cualquier controversia derivada del empleo público como “netamente laboral”. Precisó que la competencia se define según el contenido material de la pretensión y el régimen jurídico aplicable: si se cuestiona la conformidad sustancial de la conducta administrativa con el bloque de legalidad, corresponde a la jurisdicción contenciosa; si la pretensión es típicamente laboral (aguinaldo, vacaciones, cesantía), corresponde a la jurisdicción de trabajo. La antigua Ley Reguladora no fue anulada en sí misma, pues admitía una interpretación conforme con la Constitución. La sentencia tiene efectos retroactivos a la vigencia de la norma y jurisprudencia anuladas, sin perjuicio de derechos adquiridos de buena fe y situaciones jurídicas consolidadas.",
  "summary_en": "The Constitutional Chamber consolidated two actions of unconstitutionality against Article 3(a) of the Contentious-Administrative Procedure Code and the case law of the First Chamber that, under the old law, systematically referred to labor courts actions seeking annulment of administrative acts arising from public employment relationships. The Court held that Article 49 of the Constitution exclusively reserves to the contentious-administrative jurisdiction the review of the legality of all administrative activity, including conduct occurring within a statutory relationship. The radical exclusion in the Code emptied this institutional guarantee of its content, and was therefore declared unconstitutional. It also struck down the case law that labeled any public-employment dispute as “purely labor.” It clarified that jurisdiction is determined by the substantive content of the claim and the applicable legal regime: challenges to the substantial conformity of administrative conduct with the legal framework belong to the contentious-administrative venue; typically labor claims (bonuses, vacation, severance pay) remain with the labor courts. The old Regulatory Law itself was not annulled, as it allowed for a constitutionally conforming interpretation. The ruling has retroactive effect to the effective date of the annulled provision and case law, without prejudice to good-faith vested rights and settled legal situations.",
  "court_or_agency": "Sala Constitucional",
  "date": "09/06/2010",
  "year": "2010",
  "topic_ids": [
    "_off-topic"
  ],
  "primary_topic_id": "_off-topic",
  "es_concept_hints": [
    "jurisdicción contencioso-administrativa",
    "función administrativa",
    "empleo público",
    "relación estatutaria",
    "competencia material",
    "contenido material de la pretensión",
    "régimen jurídico aplicable",
    "Sala Primera de Casación",
    "artículo 49 de la Constitución",
    "Código Procesal Contencioso-Administrativo"
  ],
  "article_citations": [
    {
      "law": "Ley Reguladora de la Jurisdicción Contencioso Administrativa",
      "article": "4",
      "doc_id": "norm-7331",
      "source": "metadata"
    },
    {
      "law": "Ley 3667",
      "article": "4",
      "doc_id": "norm-7331",
      "source": "metadata"
    }
  ],
  "keywords_es": [
    "inconstitucionalidad",
    "empleo público",
    "jurisdicción contencioso-administrativa",
    "jurisdicción laboral",
    "artículo 49 Constitución",
    "función administrativa",
    "competencia material",
    "pretensiones",
    "contenido material",
    "régimen jurídico aplicable",
    "relación estatutaria",
    "Sala Constitucional",
    "Sala Primera de Casación",
    "Código Procesal Contencioso-Administrativo"
  ],
  "keywords_en": [
    "unconstitutionality",
    "public employment",
    "contentious-administrative jurisdiction",
    "labor jurisdiction",
    "Article 49 Constitution",
    "administrative function",
    "material competence",
    "claims",
    "substantive content",
    "applicable legal regime",
    "statutory relationship",
    "Constitutional Chamber",
    "First Chamber of Cassation",
    "Contentious-Administrative Procedure Code"
  ],
  "excerpt_es": "El precepto impugnado excluye de manera radical y absoluta –sin excepción- del conocimiento y resolución de la jurisdicción contencioso-administrativa, toda pretensión relacionada con la conducta administrativa en el marco de una relación estatutaria, con lo cual transgrede, palmariamente, el Derecho de la Constitución y, particularmente, el artículo 49 constitucional que le reservó exclusivamente, como competencia material, a ese orden jurisdiccional “garantizar la legalidad de la función administrativa”. El texto legislativo impugnado no admite, por su tenor literal cerrado, una interpretación conforme con el Derecho de la Constitución y la necesaria distinción entre pretensiones que, por su contenido material y el régimen jurídico aplicable, deben ser de conocimiento y resolución, sea de la jurisdicción contencioso-administrativa o de la laboral. (…) En efecto, tal y como se señaló, habrá pretensiones que, por su carácter material o sustancial y el régimen jurídico aplicable, aunque deducidas en el contexto de una relación de empleo público, deben ser conocidas y resueltas, por imperativo constitucional (artículo 49 de la Constitución), por la jurisdicción contencioso-administrativa, esto es, todas aquellas en las que un funcionario o servidor público cuestione la conformidad sustancial o validez de cualquier manifestación específica de la función administrativa o conducta administrativa con el ordenamiento jurídico-administrativo.",
  "excerpt_en": "The challenged provision radically and absolutely —without exception— excludes from the jurisdiction and decision of the contentious-administrative courts any claim related to administrative conduct within a statutory relationship, thereby flagrantly violating the Law of the Constitution and, in particular, Article 49, which exclusively reserves to that jurisdictional venue, as its material competence, the duty to “guarantee the legality of the administrative function.” The challenged statutory text, by its closed literal wording, does not permit an interpretation consistent with the Law of the Constitution and the necessary distinction between claims that, by their material content and applicable legal regime, must be heard and decided by either the contentious-administrative or the labor jurisdiction. (…) Indeed, as noted, there are claims that, by their substantive character and applicable legal regime, even if brought within the context of a public-employment relationship, must be heard and decided, by constitutional imperative (Article 49 of the Constitution), by the contentious-administrative courts — that is, all those in which a public official challenges the substantial conformity or validity of any specific manifestation of the administrative function or administrative conduct with the administrative legal system.",
  "outcome": {
    "label_en": "Partially granted",
    "label_es": "Con lugar parcialmente",
    "summary_en": "The Chamber held unconstitutional Article 3(a) of the CPCA and the case law of the First Chamber that referred all public-employment disputes to the labor courts, but dismissed the challenge to the repealed law's Article 4(a) as capable of constitutionally conforming interpretation.",
    "summary_es": "La Sala declaró inconstitucional el artículo 3, inciso a), del CPCA y la jurisprudencia de la Sala Primera que remitía a la vía laboral cualquier controversia de empleo público, pero desestimó la impugnación del artículo 4, inciso a), de la ley derogada por considerarlo susceptible de interpretación conforme con la Constitución."
  },
  "pull_quotes": [
    {
      "context": "Considerando IV",
      "quote_en": "The derived constituent power established a constitutional reservation of the material competence of the contentious-administrative jurisdiction by providing that its purpose is to “guarantee the legality of the administrative function,” whereby the ordinary legislator, in the exercise of its freedom to shape or configure the law, may not assign that competence to any jurisdictional order other than the contentious-administrative one, since doing so would empty of content the institutional guarantee and fundamental right enshrined in Article 49 of the Constitution.",
      "quote_es": "El constituyente derivado o poder reformador estableció una reserva constitucional de la competencia material de la jurisdicción contencioso-administrativa al estatuir que su objeto es “garantizar la legalidad de la función administrativa”, razón por la cual el legislador ordinario, en el ejercicio de su libertad de conformación o configuración, no puede atribuirle esa competencia a otro orden jurisdiccional que no sea el contencioso-administrativo, puesto que, de ser así, estaría vaciando de contenido la garantía institucional y el derecho fundamental que consagra el artículo 49 de la Constitución."
    },
    {
      "context": "Considerando IV",
      "quote_en": "This Constitutional Court considers that the determining criteria for delimiting the jurisdictional scope of the contentious-administrative jurisdiction from other specialized jurisdictional orders will henceforth be the following: (1) the material or substantive content of the claim, and (2) the applicable legal regime; so that if the substantial conformity or non-conformity of a specific manifestation of the administrative function with the rule-of-law block is at issue, the dispute must necessarily be heard by the contentious-administrative jurisdiction.",
      "quote_es": "Este Tribunal Constitucional, estima que los criterios determinantes para deslindar el ámbito competencial de la jurisdicción contencioso-administrativa de otros ordenes jurisdiccionales especializados serán, entonces, los siguientes: 1°) El contenido material o sustancial de la pretensión y 2°) el régimen jurídico aplicable; de modo que si se discute la conformidad o disconformidad sustancial de una manifestación específica de la función administrativa con el bloque de legalidad, el conflicto de interés, será, necesariamente, de conocimiento de la jurisdicción contencioso-administrativa."
    },
    {
      "context": "Considerando VI",
      "quote_en": "The labor jurisdiction shall hear and decide —even if the matter is related to the administrative conduct or function exercised by a public entity— typically or materially labor matters, such as the propriety or not and the calculation for payment of the Christmas bonus, vacation, notice and severance aid, matters concerning the recognition of a pension or retirement, occupational hazards, and disputes arising in the field of individual and collective labor law.",
      "quote_es": "La jurisdicción laboral deberá conocer y resolver –aunque el tema se encuentre relacionado con la conducta o función administrativa ejercida por un ente público- extremos típica o materialmente laborales, tales como la procedencia o no y el cálculo para el pago del aguinaldo, vacaciones, preaviso y auxilio de cesantía, lo concerniente al reconocimiento de una jubilación o pensión o los riesgos profesionales, las controversias que se susciten en el ámbito del Derecho laboral individual y colectivo."
    }
  ],
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      "id": "nexus-sen-1-0004-1041459",
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      "title_en": "Jurisdictional conflict between agrarian and administrative courts over lease of INDER public domain lands",
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      "citation": "Res. 00013-2015 Tribunal Contencioso Administrativo Sección IV",
      "title_en": "Prescription of disciplinary power in the police regime and computation of the time limit",
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  "body_es_text": "Exp. No. 08-012174-0007-CO\n\r\r\n\nRes. No. 2010009928\n\r\r\n\nSALA CONSTITUCIONAL DE LA CORTE SUPREMA DE \r\r\nJUSTICIA. San José, a las quince horas de nueve de junio de dos mil \r\r\ndiez. \n\r\r\n\nAcciones de inconstitucionalidad acumuladas, la primera (No. \r\r\n08-012174-0007-CO), interpuesta por CÉSAR HINES CÉSPEDES, \r\r\ncédula No. 7-061-989, ENRIQUE ROJAS FRANCO, cédula No. \r\r\n1-390-1250 y DIEGO MOYA MEZA, cédula No. 1-1065-0968, contra la \r\r\njurisprudencia de la Sala Primera de la Corte Suprema de Justicia que remite, \r\r\nen razón de la materia, a la jurisdicción laboral, los procesos que tienen \r\r\ncomo objeto la nulidad de actos administrativos vinculados a una relación de \r\r\nempleo público emitida con fundamento en el artículo 4°, inciso a), de la \r\r\nLey Reguladora de la Jurisdicción Contencioso Administrativa, ordinal que, \r\r\ntambién, impugna y, por conexidad, contra el artículo 3°, inciso a), del \r\r\nCódigo Procesal Contencioso-Administrativo, Ley No. 8508 de 25 de abril \r\r\ndel 2006, en cuanto excluye del conocimiento de dicha jurisdicción la materia \r\r\ndel empleo público, la segunda acción (No. 09-008798-0007-CO), \r\r\ninterpuesta por MANRIQUE JIMÉNEZ MEZA, cédula No. 1-487-250, \r\r\ncontra el inciso a) del artículo 3° del Código Procesal \r\r\nContencioso-Administrativo, Ley No. 8508 de 25 de abril del 2006, y, \r\r\nsubsidiariamente, contra la interpretación que la Sala Primera de la Corte \r\r\nSuprema de Justicia ha dado a favor de la remisión de los asuntos de empleo \r\r\npúblico a la jurisdicción laboral. Interviene también en la acción la \r\r\nPROCURADURÍA GENERAL DE LA REPÚBLICA y el\r\r\n INSTITUTO \r\r\nNACIONAL DE VIVIENDA Y URBANISMO.\n\r\r\n\nRESULTANDO:\n\r\r\n\n1.- Por memorial presentado en la Secretaría de la Sala a las 7:51 hrs. \r\r\ndel 8 de setiembre del 2008 (folios 1-56), César Hines Céspedes, cédula No. \r\r\n7-061-989, Enrique Rojas Franco, cédula No. 1-390-1250, y Diego Moya \r\r\nMeza, cédula No. 1-1065-968, los dos últimos quienes dicen actuar en \r\r\ncondición de abogados directores de los procesos judiciales de la señora \r\r\nLilliana Alfaro Rojas, en el expediente judicial No. 05-000677-163-CA y de \r\r\nLidia González Mora, en el proceso judicial No. 00-000337-163-CA, \r\r\nsolicitaron la declaratoria de inconstitucionalidad de la jurisprudencia de la \r\r\nSala Primera de la Corte Suprema de Justicia que remite, en razón de la \r\r\nmateria, a la jurisdicción laboral, los procesos que tienen como objeto la \r\r\nnulidad de actos administrativos vinculados a una relación de empleo \r\r\npúblico y, por conexidad, del artículo 3°, inciso a), del Código Procesal \r\r\nContencioso-Administrativo, Ley No. 8508 de 25 de abril del 2006, en \r\r\ncuanto excluye del conocimiento de dicha jurisdicción la materia del empleo \r\r\npúblico y, por el mismo motivo, del artículo 4°, inciso a), de la Ley de la \r\r\nLey Reguladora de la Jurisdicción Contencioso-Administrativa, No. 3667 de \r\r\n12 de marzo de 1966. Las normas se impugnan en cuanto, en criterio de los \r\r\naccionantes, la Sala Primera de la Corte Suprema de Justicia ha venido \r\r\nmanteniendo una posición jurisprudencial en donde se ha instituido un trato \r\r\ndiferenciado a las relaciones de empleo público derivadas de contratos de \r\r\ntrabajo existentes entre funcionarios públicos y la Administración pública, \r\r\nprovocando la violación de la relación jurídica subyacente que da pie o \r\r\nrazón de existencia a la relación principal, que es de carácter administrativo e \r\r\ninfringiendo así lo dispuesto en el artículo 49 de la Constitución Política. El \r\r\nnumeral 3°, inciso a), del nuevo Código Procesal Contencioso \r\r\nAdministrativo resulta también inconstitucional, toda vez que establece que la \r\r\nJurisdicción Contencioso Administrativa y Civil de Hacienda no conocerá las \r\r\npretensiones relacionadas con la conducta de la Administración Pública en \r\r\nmateria de relaciones de empleo público, las cuales serán de conocimiento \r\r\nde la jurisdicción laboral. En este caso, al igual que lo establecía el numeral \r\r\n4°, inciso a), de la antigua Ley Reguladora de la Jurisdicción Contencioso \r\r\nAdministrativa (también cuestionado), se violenta flagrantemente la \r\r\nConstitución Política, específicamente el citado numeral 49 que delimita \r\r\nclaramente el alcance y fin específico de la jurisdicción contenciosa. La \r\r\nesencia del nuevo Código Procesal Contencioso Administrativo, expresada \r\r\nen la intención del legislador encarnada en el artículo 3°, inciso a), del \r\r\ncuerpo normativo, es la misma que se venía manteniendo en la Ley \r\r\nReguladora de la Jurisdicción Contencioso Administrativa, exactamente en el \r\r\nnumeral 4°, inciso a), de su articulado, motivo por el cual ambos criterios \r\r\nsuponen la arbitrariedad reflejada en la inobservancia de lo establecido por el \r\r\nartículo 49 constitucional.\n\r\r\n\n2.- Por resolución de la Presidencia de la Sala de las 10:15 hrs. del 22 \r\r\nde octubre del 2008 (folio 51), se le previno a los actores que presentaran \r\r\ndocumento que acreditara la representación con la que comparecían; copia \r\r\ncertificada del libelo donde invocaron la inconstitucionalidad que solicitan, \r\r\ndentro de un asunto pendiente de resolución y referencias suficiente de la \r\r\njurisprudencia que impugnan.\n\r\r\n\n3.- Mediante escrito presentado a las 13:12 hrs. (folio 53), los actores \r\r\nEnrique Rojas Franco y Diego Moya Meza indicaron que presentaban los \r\r\ndocumentos para cumplir con la prevención.\n\r\r\n\n4.- Por resolución de la Presidencia de la Sala de las 11:30 hrs. del 18 \r\r\nde diciembre del 2008 (folio 111), se le dio curso a la presente acción de \r\r\ninconstitucionalidad. \n\r\r\n\n5.- Los avisos de Ley fueron publicados en los Boletines Judiciales \r\r\nnúmeros 15, 16 y 17 de los días 22, 23 y 26 de enero del 2009 (folio 115). \n\r\r\n\n6.- Mediante escrito presentado en la Secretaría de la Sala a las 15:20 \r\r\nhrs. del 28 de enero del 2009 (folios 116-151), Ana Lorena Brenes Esquivel, \r\r\nen su condición de Procuradora General de la República, recomendó \r\r\ndeclarar con lugar la acción y tener por inconstitucionales las normas \r\r\nimpugnadas. La Procuradora aclaró, en primer término, que el contenido de \r\r\nesta acción de inconstitucionalidad coincide, plenamente, con los \r\r\nargumentos expuestos por el accionante César Hines en la acción de \r\r\ninconstitucionalidad No. 06-013862-0007-CO, también interpuesta por él; \r\r\npor consiguiente, el actual informe encuentra su base en el que se rindió en \r\r\ndicho expediente. No se refirió a la legitimación. En cuanto al fondo, indicó \r\r\nque el artículo 49 de la Constitución Política atribuye, en forma exclusiva,\r\r\n el \r\r\ncontrol judicial de la legalidad de la función administrativa a la jurisdicción \r\r\ncontencioso-administrativa. Las relaciones de empleo público son relaciones \r\r\njurídico-administrativas. En consecuencia, la jurisprudencia de la Sala \r\r\nPrimera que atribuye el conocimiento de las controversias sobre la relación \r\r\nde empleo público a la jurisdicción laboral, así como las disposiciones \r\r\nlegales en que se sustenta, sí son inconstitucionales. En efecto, agrega, la \r\r\njurisdicción contencioso-administrativa fue creada como una jurisdicción \r\r\ndistinta dentro del Poder Judicial; la distinción no se origina de la naturaleza \r\r\nde las personas, sino del objeto de protección. Su cometido es garantizar la \r\r\nlegalidad de la actuación de las administraciones públicas frente al \r\r\nadministrado y tutelar los derechos de éste último. Ninguna otra jurisdicción \r\r\npuede ejercer un control en esos mismos términos. De otra parte, continúa la \r\r\nProcuraduría, la relación de empleo público es administrativa, según se \r\r\ndesprende de los artículos 191 y 192 de la Constitución Política, distinta de \r\r\nla relación laboral común. Así, también, está contemplado en los artículos \r\r\n111 y 112 de la Ley General de la Administración Pública y lo ha reiterado \r\r\nesta Sala en varias sentencias. Ahora bien, las normas impugnadas no han \r\r\ndistinguido en forma alguna la naturaleza de la relación. Implícitamente, \r\r\npresume que toda relación de empleo en el sector público es de naturaleza \r\r\nlaboral, desconociendo lo anteriormente apuntado. Se han alegado, dice la \r\r\nProcuraduría, razones de conveniencia para que la jurisdicción laboral \r\r\nconozca y resuelva asuntos contencioso-administrativos; sin embargo, estas \r\r\nno son atendibles, pues, de conformidad con el artículo 49 constitucional, \r\r\nsolo dentro de la jurisdicción contencioso administrativa es posible crear un \r\r\ntribunal con especialidad en materia de empleo público. Finalmente, la \r\r\nProcuraduría sostiene que sólo cuando la relación de empleo, en el sector \r\r\npúblico, se rige por el derecho laboral, puede conocerlo la jurisdicción de \r\r\ntrabajo. Se da este supuesto, por ejemplo, en las empresas públicas que se \r\r\nrigen por el derecho privado. En todo caso, se exceptúan, en este último \r\r\nsupuesto, la clase gerencial y de fiscalización. En suma, concluye la \r\r\nProcuraduría, las normas impugnadas sí son inconstitucionales y así pide \r\r\nque se declaren, pero que se conceda un plazo de 3 a 5 años para que el \r\r\nPoder Legislativo dicte una ley que establezca una sección dentro de la \r\r\njurisdicción contencioso-administrativa que se encargue de resolver los \r\r\nconflictos relacionados con el empleo público.\n\r\r\n\n7.- Mediante escrito presentado en la Secretaría de la Sala a las 15:03 \r\r\nhrs. del 4 de febrero del 2009 (folios 152-163), María del Carmen Redondo \r\r\nSolís, Gerente General de Instituto Nacional de Vivienda y Urbanismo, \r\r\ncontestó la audiencia. Indicó que no encuentra vicios de inconstitucionalidad \r\r\nen las normas impugnadas. La jurisdicción laboral, también, protege \r\r\nprincipios contenidos en la Constitución Política. De otra parte, no se ajusta \r\r\nal principio de justicia pronta y cumplida que el trabajador deba, primero, \r\r\nsolicitar la nulidad del acto y luego exigir, en la vía de trabajo, los extremos \r\r\nlaborales. En el caso concreto, la relación con la funcionaria despedida fue \r\r\nestrictamente laboral. Originalmente se presentó ante la jurisdicción \r\r\ncontencioso-administrativa, que suspendió el acto, por lo que la ex \r\r\nfuncionaria fue reinstalada. Posteriormente, por decisión de la Sala Segunda \r\r\nde la Corte Suprema de Justicia, el asunto fue radicado en la jurisdicción \r\r\nlaboral. Sobre el caso particular de Lidia González Mora, ya esta Sala, \r\r\nincluso, se pronunció en un recurso de amparo. De manera general, también, \r\r\nlo hizo sobre la reestructuración que sufrió el instituto. Las relaciones en \r\r\nDerecho no se presentan de manera pura y es claro que el Estado se \r\r\ninmiscuye en una serie de actividades, incluso, privadas. No hay \r\r\ninconstitucionalidad alguna en que la jurisdicción laboral conozca los \r\r\nconflictos surgidos de una relación laboral que el Estado haya establecido \r\r\ncon una persona.\n\r\r\n\n8.- Mediante escrito presentado en la Secretaría de la Sala a las 15:29 \r\r\nhrs. del 10 de febrero del 2009 (folios 167-171), Luis Fernando Pérez \r\r\nMorais, presentó una coadyuvancia activa. Indicó que él presentó una acción \r\r\ncontencioso-administrativa contra el Estado, pero el Juzgado \r\r\nContencioso-Administrativo se declaró incompetente, siguiendo la \r\r\njurisprudencia que se impugna en esta acción. Considera que hay temas, \r\r\ncomo la exigencia de una indemnización, que no están comprendidos dentro \r\r\ndel objeto de un proceso laboral. Considera, por consiguiente, que las \r\r\nnormas impugnadas son contrarias al artículo 49 de la Constitución Política.\n\r\r\n\n9.- Mediante escrito presentado en la Secretaría de la Sala a las 15:17 \r\r\nhrs. del 12 de febrero del 2009 (folios 173-175), Jorge Fisher Aragón, \r\r\npresentó una coadyuvancia activa. Indicó que Maykel Segura López \r\r\ninterpuso un proceso contra el Estado ante el Juzgado \r\r\nContencioso-Administrativo, pero éste se declaró incompetente, en virtud de \r\r\nlas normas impugnadas, lo que él considera contrario al artículo 49 de la \r\r\nConstitución Política.\n\r\r\n\n10.- Mediante escrito presentado en la Secretaría de la Sala a las 15:20 \r\r\nhrs. del 12 de febrero del 2009 (folios 179-183), Eduardo López Arroyo, \r\r\napoderado especial judicial de Víctor Hugo Salas Brenes, presentó una \r\r\ncoadyuvancia activa. Indicó que éste último presentó una solicitud, ante el \r\r\nTribunal Contencioso-Administrativo, de medida cautelar atípica, en un \r\r\nproceso contra la Caja Costarricense de Seguro Social, que le cobra cuotas \r\r\npatronales, con lo que él no está de acuerdo. Sin embargo, el Tribunal señaló \r\r\nque, posiblemente, se trata de un caso donde se presenta una incompetencia \r\r\nen razón de la materia. Considera que se trata de la nulidad de un acto que \r\r\nno se ajusta a la legalidad, lo que es propio de la jurisdicción \r\r\ncontencioso-administrativa.\n\r\r\n\n11.- Por resolución de las 10:20 hrs. del 18 de febrero del 2009 (folio \r\r\n217), se tuvieron por contestadas las audiencias concedidas a la \r\r\nProcuraduría General de la República y al Instituto Nacional de Vivienda y \r\r\nUrbanismo. Igualmente, se tuvieron por presentadas las coadyuvancias \r\r\nactivas arriba indicadas. Finalmente, se turnó esta acción de \r\r\ninconstitucionalidad.\n\r\r\n\n12.- Mediante escrito presentado a las 8:32 hrs. del 14 de abril del 2009 \r\r\n(folio 241), [Nombre 001], presentó coadyuvancia activa, ya que él presentó \r\r\nuna acción idéntica, pero fue rechazada por la forma.\n\r\r\n\n13.- Mediante escrito en la Secretaría de la Sala a las 8:55 hrs. del 16 de \r\r\nfebrero del 2009 (folio 242), Alvin Villavicencio Coronado, cuya firma no \r\r\nestá autenticada, se quejó por la presentación de esta acción de \r\r\ninconstitucionalidad.\n\r\r\n\n14.- Mediante escrito presentado a las 13:30 hrs. de 18 de mayo de \r\r\n2009 (folio 248), Noemy Campos Solórzano, manifestó que el Juzgado de \r\r\nTrabajo del II Circuito Judicial de San José suspendió un proceso en el que \r\r\nella es parte, y cuya resolución es urgente, pues versa sobre su pensión. \r\r\nSolicitó que se excluyera dicho caso de la suspensión, para que el Juzgado \r\r\npudiera fallar.\n\r\r\n\n15.- Mediante escrito presentado a las 11:50 hrs. del 10 de junio de \r\r\n2009 (folios 249-250), Cristino Herrera Trejos, cuya firma no aparece \r\r\nautenticada, solicitó que se resolviera esta acción, pues es parte en un \r\r\nproceso pendiente en la vía laboral, que se suspendió debido a este proceso \r\r\nde inconstitucionalidad.\n\r\r\n\n16.- Mediante escrito presentado a las 8:45 hrs. del 11 de junio de 2009 \r\r\n(folio 255), Alvin Villavicencio Coronado, cuya firma no está autenticada, \r\r\nsolicitó el pronto despacho de este proceso, pues es parte en un proceso \r\r\nque se encuentra suspendido en virtud de esta acción de \r\r\ninconstitucionalidad.\n\r\r\n\n17.- Mediante escrito presentado a las 9:22 hrs. de 15 de junio de 2009 \r\r\n(folio 256), Anabelle Cordero Montero, Asistente Judicial del Juzgado de \r\r\nTrabajo del II Circuito Judicial de San José, remitió los expedientes No. \r\r\n00-000337-0163-CA y No. 08-000644-1027-CA.\n\r\r\n\n18.- Mediante escrito presentado a las 12:12 hrs. del 25 de setiembre de \r\r\n2009 (folio 257), Luis Antonio Quesada M., cuya firma no está autenticada, \r\r\nsolicitó el pronto despacho de este proceso, pues es parte en un proceso \r\r\nque se encuentra suspendido en virtud de esta acción de \r\r\ninconstitucionalidad.\n\r\r\n\n19.- Mediante escrito presentado a las 15:54 hrs. de 29 de septiembre \r\r\nde 2009 (folio 258), Ana María Madriz Gamboa, solicitó el pronto despacho \r\r\nde este proceso, pues es parte en un proceso que se encuentra suspendido \r\r\nen virtud de esta acción de inconstitucionalidad.\n\r\r\n\n20.- Mediante escrito presentado a las 11:08 hrs. de 10 de junio de 2009 \r\r\n(folios 264-291), Manrique Jiménez Meza, en calidad de apoderado de José \r\r\nManuel Ulate Avendaño, interpuso acción de inconstitucionalidad contra el \r\r\ninciso a) del artículo 3 del Código Procesal Contencioso-Administrativo, \r\r\nimpugnado en esta acción, y, subsidiariamente, contra la jurisprudencia de \r\r\nde la Sala Primera de la Corte Suprema de Justicia a favor de la remisión de \r\r\nlos asuntos de empleo público a la jurisdicción laboral (sentencias No. \r\r\n742-C-2006, No. 607-C-01 y No. 769-C-2007), a la que se le asignó el \r\r\nexpediente No. 09-008798-0007-CO. En cuanto a la legitimación, adujo que \r\r\nsu representado, en calidad de Alcalde de la Municipalidad de Heredia, es \r\r\nparte demandada en el proceso No. 08-000766-1027-CA interpuesto por la \r\r\nContraloría General de la República ante el Tribunal \r\r\nContencioso-Administrativo y Civil de Hacienda, con el fin de anular los \r\r\nacuerdos administrativos de pago de anualidades a su representado. Adujo \r\r\nque, en dicho proceso, su representado alegó la inconstitucionalidad de las \r\r\nnormas impugnadas, como medio para defender sus derechos. En cuanto al \r\r\nfondo, sostuvo que la norma atacada en el presente proceso, sea en su letra, \r\r\ncontenido o interpretación, viola los siguientes numerales de la Constitución \r\r\nPolítica: artículo 11 (deber de subordinación de los funcionarios públicos al \r\r\nDerecho de la Constitución en calidad de derecho primigenio); 39 y 41 \r\r\n(debido proceso, por cuanto se obliga al justiciable a recurrir a la \r\r\ncompetencia jurisdiccional laboral, cuando sus pretensiones sean propias del \r\r\nderecho administrativo y del procesal contencioso administrativo para la \r\r\nsalvaguarda de sus intereses legítimos y derechos subjetivos); 49 (principio \r\r\nde autonomía de la jurisdicción contencioso administrativa); artículos 70 y \r\r\n74 (en cuanto se crea la jurisdicción de trabajo en relación con los derechos \r\r\nsociales de rango irrenunciable, sin que esta jurisdicción pueda resolver \r\r\nasuntos relacionados con extremos propios del derecho administrativo y de \r\r\nla jurisdicción contencioso administrativa, en la que podrían darse \r\r\nsituaciones donde los derechos e intereses sean renunciables); el principio de \r\r\nrazonabilidad, porque, a su juicio, no es razonable que el estado de derecho \r\r\nse violente por ley o por su interpretación y que se impida satisfacer las \r\r\npretensiones de los justiciables, sea en la dinámica estrictamente laboral o en \r\r\nla propiamente contencioso-administrativa, con exclusión dogmática de una \r\r\nen beneficio exclusivo de la otra. La proporcionalidad, por cuanto dejar \r\r\nexcluida la jurisdicción contencioso-administrativa cuando las pretensiones \r\r\ntengan ligamen estricto con esta jurisdicción y no con la otra de tipo laboral, \r\r\nlo que constituye una negación de justicia en perjuicio de los justiciables y de \r\r\nsu libertad de elección, conforme a las pretensiones en cada proceso. \r\r\nAgregó, finalmente, que, partir dogmáticamente de que toda y cualquier \r\r\nconducta administrativa o relación jurídico-administrativa relacionadas con \r\r\nempleo público sea, imperativamente, resorte exclusivo de la competencia \r\r\njurisdiccional laboral, contradice también el principio de la justicia pronta y \r\r\ncumplida y los derechos de los justiciables que pretendan, en una u otra \r\r\njurisdicción, extremos laborales o acaso contencioso administrativos. Por \r\r\nello, solicita, de manera principal la inconstitucionalidad del artículo 3, inciso \r\r\na), del Código Procesal Contencioso Administrativo. De manera subsidiaria, \r\r\nalegó la inconstitucionalidad de la interpretación que la Sala Primera de la \r\r\nCorte Suprema de Justicia ha dado en favor de la remisión de los asuntos de \r\r\nempleo público a la jurisdicción laboral, para lo cual señaló las sentencias \r\r\n742-C-2006 de las 10:05 horas del 5 de octubre de 2006, 607-C-01 de las \r\r\n10:09 horas del 10 de agosto del 2001 y 769-C-2007 de las 15:20 horas del \r\r\n31 de octubre del 2007.\n\r\r\n\n21.- Por resolución No. 2009-010543 de las 14:44 hrs. de 1° de julio de \r\r\n2009 (folios 297-300), se reservó el dictado de la sentencia de fondo en la \r\r\nacción No. 09-008798-0007-CO a la espera de que se resolviera en la acción \r\r\nNo. 08-012174-0007-CO.\n\r\r\n\n22.- Por resolución No. 2009-015667 de las 14:44 hrs. de 7 de octubre \r\r\nde 2009 (folio 302), se anuló la resolución No. 2009-010543 y se ordenó \r\r\nacumular la acción No. 09-008798-0007-CO a la presente.\n\r\r\n\n23.- Mediante escrito presentado a las 11:05 hrs. de 17 de noviembre \r\r\nde 2009 (folios 305-306), Rolando Chacón Ramírez, quien es parte dentro \r\r\nde un proceso laboral suspendido por esta acción, solicitó que se aclarara \r\r\nque los asuntos que ya se tramitan en la vía laboral puedan continuar hasta \r\r\nsu finalización.\n\r\r\n\n24.- Mediante escrito presentado a las 10:00 hrs. de 1° de febrero de \r\r\n2010 (folios 309-310), Verny Cordero Fonseca, quien dice ser parte en un \r\r\nproceso laboral suspendido por esta acción, solicitó que se rechazara y que, \r\r\nen todo caso, se resolviera pronto.\n\r\r\n\n25.- Mediante escrito presentado a las 14:00 hrs. de 12 de febrero de \r\r\n2010 (folios 313-314), Jesús Araya Zúñiga y Ruth Camacho Jiménez, \r\r\nsolicitaron ser tenido como coadyuvantes activos, por ser parte en un \r\r\nproceso en donde se aplica la norma impugnada.\n\r\r\n\n26.- Mediante escrito presentado a las 10:30 hrs. de 15 de febrero de \r\r\n2010 (folios 315-316), Verny Cordero Fonseca reiteró el escrito que ya había \r\r\npresentado.\n\r\r\n\n27.- Mediante escrito presentado a las 11:07 hrs. de 4 de marzo de \r\r\n2010 (folios 318-319), Eduardo Contreras Ramírez, solicitó la pronta \r\r\nresolución de esta acción, pues es parte en un proceso que está suspendido \r\r\nen virtud de esta.\n\r\r\n\n28.- Mediante escrito presentado a las 9:00 hrs. de 13 de abril de 2010 \r\r\n(folio 320), Cristino Herrera Trejos, cuya firma no aparece autenticada, \r\r\nreiteró su solicitud para que se resolviera esta acción.\n\r\r\n\n29.- Mediante escrito presentado a las 13:04 hrs. de 14 de abril de 2010 \r\r\n(folio 321), Edgar Cubero Castro, cuya firma no aparece autenticada, \r\r\nsolicitó la pronta resolución de este proceso, pues impide el dictado final de \r\r\nla resolución de un proceso laboral en que es parte.\n\r\r\n\n30.- Mediante escrito presentado a las 7:55 hrs. de 21 de abril de 2010 \r\r\n(folios 325-329), Flor de María Flores Chavarría, cuya firma no aparece \r\r\nautenticada, solicitó el pronto despacho de este proceso y que se declarara \r\r\nsin lugar, pues mantiene paralizados los procesos laborales, en uno de los \r\r\ncuales ella es parte.\n\r\r\n\n31.- Mediante escrito presentado a las 10:53 hrs. de 12 de mayo de \r\r\n2010 (folio 330), Ana María Madriz Gamboa, reiteró la solicitud de pronto \r\r\ndespacho de este proceso. \n\r\r\n\n32.- En la substanciación del proceso se han observado las \r\r\nprescripciones de ley. \n\r\r\n\nRedacta el Magistrado Jinesta Lobo; y,\n\r\r\n\nCONSIDERANDO:\n\r\r\n\nI.- LEGITIMACIÓN Y PROCEDENCIA DE LA ACCIÓN DE \r\r\nINCONSTITUCIONALIDAD. El numeral 75, párrafo 1°, de la Ley de la \r\r\nJurisdicción Constitucional establece como uno de los presupuestos para \r\r\ninterponer la acción de inconstitucionalidad, en el caso del control concreto, \r\r\nla existencia de un asunto pendiente de resolver ante los tribunales, inclusive \r\r\nde hábeas corpus o de amparo, o en el procedimiento para agotar la vía \r\r\nadministrativa, como un medio razonable para tutelar la situación jurídica \r\r\nsustancial que se estima lesionada. Al respecto, este Tribunal Constitucional, \r\r\nen la sentencia No. 4190-95 de las 11:33 hrs. del 28 de julio de 1995, indicó \r\r\nlo siguiente: \n\r\r\n\n«(…) En primer término, se trata de un proceso de \r\r\nnaturaleza incidental, y no de una acción directa o \r\r\npopular, con lo que se quiere decir que se requiere de la \r\r\nexistencia de un asunto pendiente de resolver -sea ante los \r\r\ntribunales de justicia o en el procedimiento para agotar la \r\r\nvía administrativa- para poder acceder a la vía \r\r\nconstitucional, pero de tal manera que, la acción \r\r\nconstituya un medio razonable para amparar el derecho \r\r\nconsiderado lesionado en el asunto principal, de manera \r\r\nque lo resuelto por el Tribunal Constitucional repercuta \r\r\npositiva o negativamente en dicho proceso pendiente de \r\r\nresolver, por cuanto se manifiesta sobre la \r\r\nconstitucionalidad de las normas que deberán ser \r\r\naplicadas en dicho asunto; y únicamente por excepción es \r\r\nque la legislación permite el acceso directo a esta vía \r\r\n-presupuestos de los párrafos segundo y tercero del \r\r\nartículo 75 de la Ley de la Jurisdicción Constitucional \r\r\n(…)».\n\r\r\n\nEn la acción de inconstitucionalidad No. 08-012174-0007-CO, los \r\r\ngestionantes, originalmente, alegaron estar legitimados para interponer esta \r\r\nacción, señalando, como asuntos base, donde habían invocado la \r\r\ninconstitucionalidad de las normas impugnadas, los procesos sustanciados \r\r\nante la jurisdicción contencioso-administrativa, en los expedientes judiciales \r\r\nNo. 05-000677-163-CA y No. 000337-163-CA. Sin embargo, \r\r\nposteriormente, atendiendo a la prevención de la Presidencia de esta Sala \r\r\npara que demostraran, mediante copias certificadas, dicha legitimación, \r\r\nomitieron aportar los documentos referidos al primero de dichos procesos \r\r\ny, en su lugar, indicaron el No. 08-000644-1027-CA, interpuesto por \r\r\nFrancisco José Hernández Solano contra el Estado. De manera que, \r\r\nmediante resolución de las 11:30 hrs. del 18 de diciembre del 2009 (ver folio \r\r\n111) se le dio curso a esta acción, con base en los procesos No. \r\r\n00-000337-0163-CA y No. 08-00644-1027-CA, ambos presentados ante la \r\r\njurisdicción contencioso-administrativa y en los que se discute sobre la \r\r\ncompetencia, en razón de la materia, de dicha jurisdicción y en los que, en \r\r\nefecto, se alegó la inconstitucionalidad de las normas aquí impugnadas \r\r\n(copias a folios 59-65 y 67-83). Estando ambos procesos pendientes de \r\r\nresolución, este Tribunal considera que los accionantes sí están legitimados \r\r\npara incoar esta acción de inconstitucionalidad. De otra parte, Manrique \r\r\nJiménez Meza interpuso la acción de inconstitucionalidad No. \r\r\n09-008798-0007-CO, acumulada a la presente, en la que aseguró estar \r\r\nlegitimado en virtud de haber invocado la inconstitucionalidad de las normas \r\r\nimpugnadas en el proceso que se tramita bajo el expediente No. \r\r\n08-000766-1027-CA, lo que, efectivamente demostró (copias a folios \r\r\n292-293). En otro orden de ideas, ya que, las normas impugnadas son \r\r\ndisposiciones de carácter general sí cabe, de conformidad con el artículo 73 \r\r\nde la Ley de la Jurisdicción Constitucional cuestionarlas en esta vía.\n\r\r\n\nII.- COADYUVANCIAS. De conformidad con el artículo 83 de la \r\r\nLey de la Jurisdicción Constitucional, en los quince días posteriores a la \r\r\nprimera publicación del aviso a que alude el párrafo segundo del artículo 81 \r\r\nde esta misma ley, “(…) aquellos con interés legítimo, podrán apersonarse \r\r\ndentro de ésta, a fin de coadyuvar en las alegaciones que pudieren \r\r\njustificar su procedencia o improcedencia o para ampliar, en su caso, los \r\r\nmotivos de inconstitucionalidad en relación con el asunto que les \r\r\ninteresa”. En este caso, se presentaron dentro del plazo de ley y, por ende, \r\r\nson admisibles las siguientes tres coadyuvancias activas: Fernando Pérez \r\r\nMorais (folios 167-172), Jorge Fisher Aragón, en representación de Maykel \r\r\nSegura López (folios 173-175), y Eduardo López Arroyo, en representación \r\r\nde Hugo Salas Brenes (folios 179-1783). Se presentaron, además, de manera \r\r\nextemporánea y, por ende, no se admiten, la coadyuvancia activa interpuesta \r\r\npor [Nombre 001] (folio 241) y la coadyuvancia pasiva planteada por Alvin \r\r\nVillavicencio Coronado (folio 242).\n\r\r\n\nIII.- OBJETO DE LAS ACCIONES DE \r\r\nINCONSTITUCIONALIDAD ACUMULADAS. Sendas acciones de \r\r\ninconstitucionalidad coinciden en impugnar en ordinal 3°, inciso a), del \r\r\nCódigo Procesal Contencioso-Administrativo, Ley No. 8508 de 24 de abril \r\r\nde 2006, en cuanto dispone que las pretensiones relacionadas con la \r\r\nconducta administrativa en materia de relaciones de empelo publico, serán de \r\r\nconocimiento de la jurisdicción laboral. Adicionalmente, en la primera acción \r\r\ninterpuesta, No. 08-012174-0007-CO, se ataca la jurisprudencia vertida por \r\r\nla Sala Primera de Casación, a la luz del artículo 4°, inciso a), de la Ley \r\r\nReguladora de la Jurisdicción Contencioso-Administrativa No. 3667 de 12 \r\r\nde marzo de 1966, en cuanto remite a conocimiento y resolución de la \r\r\njurisdicción laboral cualquier controversia surgida en el seno de una relación \r\r\nde empleo público o estatutaria, por lo que, también, se acciona contra el \r\r\nnumeral citado de la derogada Ley Reguladora de la Jurisdicción \r\r\nContencioso-Administrativa. \n\r\r\n\nIV.- REGULACIÓN CONSTITUCIONAL DE LA \r\r\nJURISDICCIÓN CONTENCIOSO-ADMINISTRATIVA Y LA \r\r\nATRIBUCIÓN CONSTITUCIONAL DE UNA COMPETENCIA. El \r\r\nconstituyente originario y el poder reformador se ocuparon de definir la \r\r\ncompetencia material y, por consiguiente, la extensión y alcances de dos \r\r\njurisdicciones esenciales para el Estado Social y Democrático de Derecho. \r\r\nEn efecto, en los ordinales 10 y 48 se establece la competencia material de la \r\r\njurisdicción constitucional y, en el numeral 49, la de la jurisdicción \r\r\ncontencioso-administrativa. Lo anterior deja patente, en la voluntad del \r\r\nconstituyente originario y del poder reformador, la trascendencia tanto del \r\r\ncontrol de constitucionalidad como de legalidad de los poderes públicos en \r\r\naras de garantizar el goce y ejercicio efectivos de los derechos \r\r\nfundamentales y humanos consagrados, respectivamente, en el texto \r\r\nconstitucional y los instrumentos del Derecho Internacional Público. Sin \r\r\nduda alguna, tales preceptos constitucionales encarnan lo que la doctrina ha \r\r\ndenominado la cláusula regia del Estado Constitucional de Derecho. En lo \r\r\nque se refiere, particularmente, a la jurisdicción contencioso-administrativa, \r\r\nel artículo 49 constitucional, después de la reforma parcial por virtud de la \r\r\nLey No. 3124 de 25 de junio de 1963, dispone lo siguiente:\n\r\r\n\n“Establécese la jurisdicción \r\r\ncontencioso-administrativa como atribución del \r\r\nPoder Judicial, con el objeto de garantizar la \r\r\nlegalidad de la función administrativa del \r\r\nEstado, de sus instituciones y de toda otra entidad \r\r\nde derecho público.\n\r\r\n\nLa desviación de poder será motivo de \r\r\nimpugnación de los actos administrativos.\n\r\r\n\nLa ley protegerá, al menos, los derechos \r\r\nsubjetivos y los intereses legítimos de los \r\r\nadministrados”. \n\r\r\n\nA partir de la transcripción literal del precepto constitucional, cabe resaltar lo \r\r\nsiguiente:\n\r\r\n\n 1°) El constituyente derivado o poder reformador optó por un modelo \r\r\nde justicia administrativa “judicialista”, esto es, encomendándole a un orden \r\r\njurisdiccional especializado del Poder Judicial la competencia y atribución de \r\r\nejercer la fiscalización de la legalidad de la función administrativa, esto es, su \r\r\nconformidad sustancial o adecuación con el bloque de legalidad. Este \r\r\nsistema ofrece garantías y ventajas comparativas considerables para el \r\r\njusticiable, tales como la especialización, lo que acompañado de la carrera \r\r\njudicial dispuesta de manera infra-constitucional, representa una verdadera \r\r\ngarantía de acierto y de cumplimiento del imperativo constitucional \r\r\ncontenido en el ordinal 41 de la Constitución de una “justicia cumplida”.\n\r\r\n\n 2°) El poder reformador definió, con meridiana claridad, la \r\r\ncompetencia material de la jurisdicción contencioso-administrativa, al indicar \r\r\nque su objeto es “garantizar la legalidad de la función administrativa”\r\r\n. \r\r\nCabe acotar que la norma constitucional no distingue, de modo que a ese \r\r\norden jurisdiccional especializado le compete la fiscalización de cualquier \r\r\nmanifestación específica de la función administrativa, sin excepciones. El \r\r\nconstituyente derivado consagró, así, una justicia administrativa plenaria y \r\r\nuniversal, evitando que haya reductos o ámbitos de la función administrativa \r\r\nexentos del control o fiscalización de legalidad. La “función \r\r\nadministrativa” es un concepto jurídico indeterminado, empleado por el \r\r\npoder reformador a partir de 1963, que comprende o engloba cualquier \r\r\nmanifestación específica o concreta de ésta, esto es, toda conducta \r\r\nadministrativa -por acción u omisión- (v. gr. la actividad formal, las \r\r\nactuaciones materiales y las omisiones formales y materiales), así como la \r\r\nfigura complementaria, más dinámica y flexible, de la relación \r\r\njurídica-administrativa. \n\r\r\n\n 3°) El constituyente derivado o poder reformador estableció una \r\r\nreserva constitucional de la competencia material de la jurisdicción \r\r\ncontencioso-administrativa al estatuir que su objeto es “garantizar la \r\r\nlegalidad de la función administrativa”, razón por la cual el legislador \r\r\nordinario, en el ejercicio de su libertad de conformación o configuración, no \r\r\npuede atribuirle esa competencia a otro orden jurisdiccional que no sea el \r\r\ncontencioso-administrativo, puesto que, de ser así, estaría vaciando de \r\r\ncontenido la garantía institucional y el derecho fundamental que consagra el \r\r\nartículo 49 de la Constitución. Sobre este punto en particular y, bajo una \r\r\nmejor ponderación, este Tribunal Constitucional varía o revierte la tesis \r\r\nexpuesta en los Votos Nos. 3095-94 de las 15:57 hrs. de 3 de agosto de \r\r\n1994, 7540-94 de las 17:42 hrs. de 21 de diciembre ambos de 1994, 5686-95 \r\r\nde las 15:39 hrs. de 18 de octubre de 1995 y 14999-2007 de las 15:06 hrs. de \r\r\n17 de octubre de 2007. Lo anterior significa que cuando un justiciable \r\r\ndeduce una pretensión para cuestionar la invalidez o disconformidad \r\r\nsustancial con el ordenamiento jurídico-administrativo de una conducta \r\r\nadministrativa o cualquier manifestación singular de la función administrativa \r\r\n(omisión formal o material, actividad formal o actuación material o relación \r\r\njurídico-administrativa), debe conocerla y resolverla, indefectiblemente, la \r\r\njurisdicción contencioso-administrativa. Obviamente, si la pretensión, por su \r\r\ncontenido material, aunque esté relacionada con alguna conducta \r\r\nadministrativa o manifestación específica de la función administrativa –en la \r\r\nmedida en que interviene un ente u órgano público-, se encuentra regida por \r\r\nel régimen jurídico laboral, de familia o agrario, debe ser conocida y resuelta \r\r\npor esos órganos jurisdiccionales, por cuanto, no se cuestiona, propiamente, \r\r\nconformidad o disconformidad sustancial de la función o conducta \r\r\nadministrativa con el ordenamiento jurídico-administrativo que es lo que el \r\r\nartículo 49 constitucional le reserva a la jurisdicción \r\r\ncontencioso-administrativa. Este Tribunal Constitucional, estima que los \r\r\ncriterios determinantes para deslindar el ámbito competencial de la \r\r\njurisdicción contencioso-administrativa de otros ordenes jurisdiccionales \r\r\nespecializados –que, en adelante, deben tenerse en consideración por la \r\r\njurisdicción ordinaria- serán, entonces, los siguientes: 1°) El\r\r\n contenido \r\r\nmaterial o sustancial de la pretensión y 2°)\r\r\n el régimen jurídico \r\r\naplicable; de modo que si se discute la conformidad o disconformidad \r\r\nsustancial de una manifestación específica de la función administrativa con \r\r\nel bloque de legalidad, el conflicto de interés, será, necesariamente, de \r\r\nconocimiento de la jurisdicción contencioso-administrativa. \n\r\r\n\n 4°) El control de legalidad consagrado en el numeral 49 de la \r\r\nConstitución se proyecta, como se indicó, a toda la función administrativa \r\r\ndesplegada por cualquier ente u órgano público, esto es, a todas las \r\r\nadministraciones públicas, sin excepción. Por tal razón, el párrafo primero \r\r\ndel precepto constitucional objeto de examen concluye con una fórmula \r\r\nresidual o general, al indicar que comprende la función desplegada tanto por \r\r\nla administración central –Estado- como por “toda otra entidad de derecho \r\r\npúblico”.\n\r\r\n\n 5°) El constituyente derivado optó por una justicia administrativa \r\r\nmixta, por cuanto, el párrafo primero, al definir el objeto del orden \r\r\njurisdiccional contencioso-administrativo -“garantizar la legalidad de la \r\r\nfunción administrativa”-, debe complementarse, ineluctablemente, con el \r\r\npárrafo in fine, al preceptuar que ley brindará protección, como mínimo, a \r\r\nlos derechos subjetivos y los intereses legítimos –sin distinguir, en cuanto a \r\r\nestos últimos, por lo que resulta admisible la tutela tanto de los personales \r\r\ncomo de los colectivos, sea corporativos o difusos-. Consecuentemente, la \r\r\njurisdicción contencioso-administrativa, según el Derecho de la Constitución, \r\r\nfue instituida tanto para velar por la legalidad de la función administrativa \r\r\ncomo para la tutela efectiva de las situaciones jurídicas sustanciales de los \r\r\nadministrados frente a los poderes públicos. Se conjuga, así, \r\r\nconstitucionalmente, un rol objetivo y subjetivo de la jurisdicción \r\r\ncontencioso-administrativa.\n\r\r\n\nV.- ALGUNAS CONDUCTAS ADMINISTRATIVAS \r\r\nRELACIONADAS CON UNA RELACIÓN DE EMPLEO PÚBLICO \r\r\nCOMO MANIFESTACIÓN ESPECÍFICA DE LA FUNCIÓN \r\r\nADMINISTRATIVA. El artículo 49 constitucional establece una \r\r\njurisdicción contencioso-administrativa plenaria y universal que le permite al \r\r\njusticiable impugnar o atacar cualquier conducta o manifestación de la \r\r\nfunción administrativa ante ese orden jurisdiccional. Dentro de las posibles \r\r\nmanifestaciones específicas de la función administrativa, constitucionalmente \r\r\nimpugnables ante la sede contencioso-administrativa, se encuentran, \r\r\nobviamente, aquellas conductas de las administraciones públicas en el marco \r\r\no contexto de una relación de empleo público o estatutaria, \r\r\nincuestionablemente, regida por el Derecho Administrativo o de naturaleza \r\r\njurídico-administrativa, según se desprende de los ordinales 191, 192 de la \r\r\nConstitución, 111 y 112 de la Ley General de la Administración Pública y de \r\r\nla jurisprudencia constitucional que los informa (Votos de este Tribunal \r\r\nConstitucional Nos. 1696-92, 4453-2000, 244-2001 y 14416-2006). Por \r\r\nconsiguiente, el legislador ordinario no puede excluir de manera radical -total \r\r\ny absoluta- del conocimiento y resolución de la jurisdicción \r\r\ncontencioso-administrativa toda conducta administrativa en materia de \r\r\nrelaciones de empleo público, puesto que, sobre tal extremo no tiene libertad \r\r\nde disposición, por cuanto, lo vincula la competencia material definida y \r\r\nreservada en el artículo 49 constitucional. De lo dicho, tampoco cabe \r\r\nconcluir que toda conducta administrativa, en materia de empleo público, \r\r\ndebe ser conocida y resuelta ante la jurisdicción contencioso-administrativa, \r\r\npor cuanto, habrá pretensiones y extremos que, por su contenido \r\r\nmaterial y el régimen jurídico aplicable, deben ser, inevitablemente, \r\r\nventilados ante la jurisdicción laboral, por razón de su competencia material \r\r\nespecífica.\n\r\r\n\nVI.- INCONSTITUCIONALIDAD DEL ARTÍCULO 3°, \r\r\nINCISO A), DEL CÓDIGO PROCESAL \r\r\nCONTENCIOSO-ADMINISTRATIVO. El numeral 3°, inciso a), del \r\r\nCódigo Procesal Contencioso-Administrativo (Ley No. 8508 de 24 de abril \r\r\nde 2006), dispone lo siguiente:\n\r\r\n\n“La jurisdicción Contencioso-Administrativa y \r\r\nCivil de Hacienda no conocerá de las \r\r\npretensiones siguientes:\n\r\r\n\na) \r\r\nLas relacionadas con la conducta de la \r\r\nAdministración Pública en materia de \r\r\nrelaciones de empleo público, las cuales serán \r\r\nde conocimiento de la jurisdicción laboral \r\r\n(…)”\n\r\r\n\nEl precepto impugnado excluye de manera radical y absoluta –sin \r\r\nexcepción- del conocimiento y resolución de la jurisdicción \r\r\ncontencioso-administrativa, toda pretensión relacionada con la conducta \r\r\nadministrativa en el marco de una relación estatutaria, con lo cual transgrede, \r\r\npalmariamente, el Derecho de la Constitución y, particularmente, el artículo \r\r\n49 constitucional que le reservó exclusivamente, como competencia material, \r\r\na ese orden jurisdiccional “garantizar la legalidad de la función \r\r\nadministrativa”. El texto legislativo impugnado no admite, por su tenor \r\r\nliteral cerrado, una interpretación conforme con el Derecho de la \r\r\nConstitución y la necesaria distinción entre pretensiones que, por su \r\r\ncontenido material y el régimen jurídico aplicable, deben ser de \r\r\nconocimiento y resolución, sea de la jurisdicción contencioso-administrativa \r\r\no de la laboral. Como se apuntó supra, cuando el justiciable pretende \r\r\ndiscutir la disconformidad sustancial o invalidez de una conducta \r\r\nadministrativa o manifestación específica de la función administrativa con el \r\r\nordenamiento jurídico-administrativo, el asunto debe ser ventilado, por la \r\r\nreserva y el imperativo constitucional del artículo 49, ante la jurisdicción \r\r\ncontencioso-administrativa. En esencia, el justiciable tiene la garantía \r\r\nconstitucional de impugnar cualquier conducta que sea manifestación de la \r\r\nfunción administrativa ante la jurisdicción contencioso-administrativa, siendo \r\r\nque existen conductas que se producen dentro de una relación de empleo \r\r\npúblico que son expresión específica del concepto general de la “función \r\r\nadministrativa”. De otra parte, habrá pretensiones que, por su contenido \r\r\nsustancial y el régimen jurídico aplicable, deben ser conocidas y \r\r\nresueltas por la jurisdicción laboral, habida cuenta de su especialidad \r\r\ncompetencial y de la necesidad de aplicar, al caso concreto, las categorías \r\r\ndogmáticas, instituciones, institutos, principios y herramientas hermenéuticas \r\r\nparticulares de esa disciplina jurídica. Así, a modo de ejemplo y sin \r\r\npretensión de exhaustividad, la jurisdicción laboral deberá conocer y resolver \r\r\n–aunque el tema se encuentre relacionado con la conducta o función \r\r\nadministrativa ejercida por un ente público- extremos típica o materialmente \r\r\nlaborales, tales como la procedencia o no y el cálculo para el pago del \r\r\naguinaldo, vacaciones, preaviso y auxilio de cesantía, lo concerniente al \r\r\nreconocimiento de una jubilación o pensión o los riesgos profesionales, las \r\r\ncontroversias que se susciten en el ámbito del Derecho laboral individual y \r\r\ncolectivo (v. gr. conflictos de carácter económico-social), de todo lo relativo \r\r\nal ejercicio del derecho a la huelga o el paro, etc. En igual sentido, se impone \r\r\nreconocer que tratándose de empleados encargados de gestiones sometidas \r\r\nal derecho común de empresas públicas o de servicios económicos \r\r\ndesarrollados por una administración pública o de simples obreros, \r\r\ntrabajadores o empleados que no participan de la gestión pública del \r\r\nrespectivo ente público, esto es, de los que la doctrina denomina \r\r\n“trabajadores de la administración pública”, las controversias surgidas deben \r\r\nser conocidas y resueltas por la jurisdicción laboral, al no tratarse, en sentido \r\r\nestricto, de un funcionario, servidor o empleado público (artículos 111, \r\r\npárrafo 2°, y 112, párrafo 2°, de la Ley General de la Administración \r\r\nPública), dado que, cualquier conducta emanada del ente público, en tal \r\r\ncontexto, no estará sometida al régimen jurídico administrativo y tampoco \r\r\npodrá ser reputada, materialmente, como una relación \r\r\njurídico-administrativa. Es preciso resaltar que el constituyente optó por \r\r\nórdenes jurisdiccionales especializados por razón de la materia –por lo \r\r\nmenos hasta cierta instancia-, como una garantía de acierto y un medio para \r\r\nel logro del imperativo constitucional de una justicia pronta y cumplida. Si \r\r\nbien, el artículo 41 constitucional consagra el derecho general de acceso a la \r\r\njurisdicción, luego los numerales 10, 48, 49, 70 y 153 de la norma \r\r\nfundamental optan, claramente, por el establecimiento de jurisdicciones \r\r\nespecializadas. De manera que el justiciable tiene el derecho de elegir ante \r\r\ncuál orden jurisdiccional acciona, en el tanto la naturaleza material de la \r\r\npretensión y el régimen jurídico aplicable sea congruente con la \r\r\nespecialidad –constitucional o legal- de la respectiva jurisdicción. Este \r\r\nTribunal Constitucional no obvia que en la práctica judicial, por una \r\r\ninadecuada o defectuosa representación o asesoría jurídica, los justiciables \r\r\npueden incurrir en equívocos al deducir una pretensión o al combinarlas \r\r\nante un orden jurisdiccional determinado, sin embargo, en tales casos, debe \r\r\nprocederse, por el órgano jurisdiccional, con la celeridad y economía \r\r\nprocesal debidas, a desacumular las pretensiones que, por su contenido \r\r\nsustancial y el régimen jurídico aplicable, no deben ventilarse en esa \r\r\nsede, así como dar curso ágil a las procedentes, si otra causa no lo impide. \r\r\nEn igual sentido, ante el surgimiento de cualquier conflicto de competencia, \r\r\nlos órganos jurisdiccionales involucrados y la Sala Primera de Casación, en \r\r\ncuanto funge como Tribunal de Conflictos entre las jurisdicciones \r\r\ncontencioso-administrativa y laboral, deben ser particularmente diligentes al \r\r\ntramitarlo y dirimirlo para evitar cualquier dilación indebida o retardo \r\r\ninjustificado que afecte sensiblemente el derecho fundamental a una justicia \r\r\npronta (artículo 41 constitucional) o el derecho humano contenido en la \r\r\nConvención Americana a un proceso en un plazo razonable (artículo 8.1). \n\r\r\n\nVII.- INCONSTITUCIONALIDAD DE LA JURISPRUDENCIA \r\r\nDE LA SALA PRIMERA DE CASACIÓN EN LA \r\r\nINTERPRETACIÓN Y APLICACIÓN DEL ARTÍCULO 4°, INCISO \r\r\nA), DE LA LEY REGULADORA DE LA JURISDICCIÓN \r\r\nCONTENCIOSO-ADMINISTRATIVA AL RESOLVER LOS \r\r\nCONFLICTOS DE COMPETENCIA ENTRE LAS JURISDICCIÓN \r\r\nLABORAL Y CONTENCIOSO ADMINISTRATIVA. Los accionantes \r\r\nimpugnan, también, por inconstitucional la jurisprudencia de la Sala Primera \r\r\nde Casación, al fungir como Tribunal de Conflictos de competencia entre la \r\r\njurisdicción laboral y contencioso-administrativa, y, particularmente, al \r\r\naplicar el numeral 4, inciso a), de la Ley Reguladora de la Jurisdicción \r\r\nContencioso-Administrativa. El Código Procesal \r\r\nContencioso-Administrativo, Ley No. 8508 de 24 de abril de 2006 –entrado \r\r\nen vigencia el 1° de enero de 2008, según la vacatio legis dispuesta en el \r\r\nartículo 222 de ese cuerpo normativo- derogó la Ley Reguladora de la \r\r\nJurisdicción Contencioso-Administrativa No. 3667 de 12 de marzo de 1966 \r\r\n(artículo 198 del Código Procesal Contencioso-Administrativo), empero, \r\r\ndentro de las disposiciones de Derecho interino del Código Procesal \r\r\nContencioso-Administrativo, los Transitorios III y IV preceptuaron lo \r\r\nsiguiente:\n\r\r\n\n“TRANSITORIO III.- \r\r\nEl régimen de impugnación \r\r\nde los actos que hayan quedado firmes en la vía \r\r\nadministrativa antes de la vigencia del presente \r\r\nCódigo, se regirá por la legislación vigente en ese \r\r\nmomento.\n\r\r\n\nTRANSITORIO IV.- Los procesos \r\r\ncontencioso-administrativos y los juicios \r\r\nordinarios atribuidos a la vía civil de Hacienda, \r\r\ninterpuestos con anterioridad a la entrada en \r\r\nvigencia de este Código, cualquiera que sea su \r\r\nestado procesal, continuarán sustanciándose, en \r\r\ntodos sus trámites y recursos, por las normas que \r\r\nregían a la fecha de inicio. Para tal efecto, el \r\r\nJuzgado de lo Contencioso-Administrativo y Civil \r\r\nde Hacienda continuará con el trámite de dichos \r\r\nasuntos hasta su finalización, y el Tribunal \r\r\nContencioso-Administrativo mantendrá las \r\r\nsecciones que sean convenientes para conocer de \r\r\nlas demandas de impugnación previstas en los \r\r\nartículos 82 a 90 de la Ley reguladora de la \r\r\nJurisdicción Contencioso-Administrativa, y en \r\r\ngrado de las resoluciones que dicte el Juzgado de \r\r\nlo Contencioso-Administrativo y Civil de \r\r\nHacienda”.\n\r\r\n\nIndependientemente, de la interpretación que le haya brindado la jurisdicción \r\r\nordinaria a estas normas transitorias, lo cierto del caso es que dejan patente \r\r\nla ultra-actividad de la Ley Reguladora de la Jurisdicción \r\r\nContencioso-Administrativa y de aquellas interpretaciones judiciales, en \r\r\nmateria de conflictos de competencia, que se produjeron en el momento \r\r\nprocesal oportuno y que, incluso, podrían verificarse en un futuro respecto \r\r\nde los procesos aún en trámite bajo la derogada legislación adjetiva. Por \r\r\nconsiguiente, la impugnada es una pauta jurisprudencial que sigue \r\r\nproduciendo efectos, sin descartarse la posibilidad que lo haga en un futuro \r\r\npara asuntos iniciados con fundamento en la legislación formal derogada \r\r\ntodavía sin fenecer definitivamente. Desde los tempranos Votos Nos. 185-95 \r\r\nde las 16:35 hrs. de 10 de enero de 1995 y 4587-97 de las 15:45 hrs. de 5 de \r\r\nagosto de 1997, este Tribunal Constitucional admitió, por vía de integración \r\r\nnormativa, la acción de inconstitucionalidad contra los criterios reiterados \r\r\npor los órganos jurisdiccionales que ha creado una pauta jurisprudencial, \r\r\npuesto que, el artículo 3° de la Ley de la Jurisdicción Constitucional \r\r\nestablece que se tendrá por infringida la Constitución cuando esto resulte de \r\r\nla interpretación que hagan las autoridades públicas de las normas jurídicas \r\r\ny de los efectos jurídicos que ésta produzca, todo en concordancia con el \r\r\nobjeto supremo de la jurisdicción constitucional de garantizar la supremacía \r\r\ndel Derecho de la Constitución (artículos 10 de la Constitución y 1° de la \r\r\nLey de la Jurisdicción Constitucional). En la especie, se impugna la línea \r\r\njurisprudencial sentada por la Sala Primera de Casación, que arranca a partir \r\r\nde la resolución No. 607-C-01 de las 10:09 hrs. de 10 de agosto de 2001, al \r\r\nresolver conflictos de competencia entre la jurisdicción laboral y \r\r\ncontencioso-administrativa y remitir el asunto a la primera, aún cuando se \r\r\ntrata de pretensiones materialmente regidas por el Derecho Administrativo (v. \r\r\ngr. nulidad de un acto de despido, reinstalación y pago de daños y \r\r\nperjuicios), al estimar, grosso modo, que cualquier controversia que se \r\r\ngenere en las relaciones de empleo público es “de índole netamente laboral”. \r\r\nPara tal efecto, se aporta copia de las siguientes resoluciones de esa \r\r\ninstancia judicial: 770-C-2001 de las 9:51 hrs. de 3 de octubre de 2001, \r\r\n478-C-2005 de las 9:40 hrs. de 7 de julio de 2005, 742-C-2006 de las 10:05 \r\r\nhrs. de 5 de octubre de 2006 y 769-C-2007 de las 15:20 hrs. de 31 de \r\r\noctubre de 2007, con lo cual se tiene por cumplido el requisito de acreditar \r\r\nla pauta jurisprudencial. A tenor de las consideraciones vertidas en los \r\r\nconsiderandos precedentes, es evidente que la línea jurisprudencial de la Sala \r\r\nPrimera de Casación que dispuso, antes de la entrada en vigencia del nuevo \r\r\nCódigo Procesal Contencioso Administrativo, y en aplicación de la Ley \r\r\nReguladora de la Jurisdicción Contencioso-Administrativa, remitir a la vía \r\r\nlaboral cualquier proceso en el que se deduzca una pretensión dentro del \r\r\nmarco de una relación estatutaria, por considerarla una controversia de \r\r\n“índole netamente laboral”, resulta, a toda luces, inconstitucional al \r\r\nquebrantar el artículo 49 de la Constitución. En efecto, tal y como se señaló, \r\r\nhabrá pretensiones que, por su carácter material o sustancial y el \r\r\nrégimen jurídico aplicable, aunque deducidas en el contexto de una \r\r\nrelación de empleo público, deben ser conocidas y resueltas, por imperativo \r\r\nconstitucional (artículo 49 de la Constitución), por la jurisdicción \r\r\ncontencioso-administrativa, esto es, todas aquellas en las que un funcionario \r\r\no servidor público cuestione la conformidad sustancial o validez de cualquier \r\r\nmanifestación específica de la función administrativa o conducta \r\r\nadministrativa con el ordenamiento jurídico-administrativo.\n\r\r\n\nVIII.- INCONSTITUCIONALIDAD ADUCIDA DEL \r\r\nARTÍCULO 4°, INCISO A), DE LA LEY REGULADORA DE LA \r\r\nJURISDICCIÓN CONTENCIOSO ADMINISTRATIVA. El artículo \r\r\n4°, inciso a), de la derogada Ley Reguladora de la Jurisdicción \r\r\nContencioso-Administrativa (No. 3667 de 12 de marzo de 1966) que todavía \r\r\nsigue produciendo efectos jurídicos en los procesos incoados antes de la \r\r\nentrada en vigor del Código Procesal Contencioso-Administrativo, disponía \r\r\nlo siguiente:\n\r\r\n\n“No corresponderán a la Jurisdicción \r\r\nContencioso-Administrativa:\n\r\r\n\na) Las cuestiones de índole penal y aquellas otras \r\r\nque, aunque relacionadas con actos de la \r\r\nAdministración Pública, correspondan a la \r\r\njurisdicción de trabajo (…)” \n\r\r\n\nEstima este Tribunal Constitucional que este precepto de la Ley Reguladora \r\r\nde la Jurisdicción Contencioso-Administrativa no es, per se, inconstitucional, \r\r\npor cuanto, de manera congruente con la competencia constitucionalmente \r\r\nestablecida y reservada para ese orden jurisdiccional (“garantizar la \r\r\nlegalidad de la función administrativa”) en el numeral 49 de la \r\r\nConstitución, admite la posibilidad que esa jurisdicción especializada pueda \r\r\nconocer y resolver determinadas controversias aun en el contexto de una \r\r\nrelación estatutaria o de empleo público, tanto es así, que la Sala Primera de \r\r\nCasación, antes de adoptar la última línea jurisprudencial que ahora se \r\r\nimpugna, sostuvo, para dirimir los conflictos de competencia entre la sede \r\r\nlaboral y contencioso-administrativa, que el juez contencioso-administrativo \r\r\npodía conocer y resolver pretensiones en las que se impugnará la validez de \r\r\nun procedimiento administrativo o de un acto administrativo formal y el \r\r\nrestablecimiento de la situación jurídica sustancial (in natura a través de la \r\r\nreinstalación o por equivalente mediante el pago de daños y perjuicios o de \r\r\nlos salarios caídos). Consecuentemente, el artículo 4°, inciso a), de la Ley \r\r\nReguladora de la Jurisdicción Contencioso-Administrativa tenía un \r\r\ncontenido más elástico o una textura más abierta –en contraste con la rigidez \r\r\ny radicalidad del artículo 3°, inciso a), del Código Procesal \r\r\nContencioso-Administrativo- que permitía interpretaciones conformes con el \r\r\nDerecho de la Constitución y, en particular, con lo dispuesto en el artículo \r\r\n49 constitucional. En suma, a partir del texto legislativo impugnado es \r\r\nposible distinguir, con meridiana claridad, dos tipos de pretensiones \r\r\n–según su contenido material o sustancial y el régimen jurídico \r\r\naplicable-, esto es, las dirigidas a cuestionar la validez o conformidad \r\r\nsustancial de una conducta administrativa con el ordenamiento jurídico \r\r\nadministrativo y aquellas que, aunque relacionadas con la conducta formal \r\r\nde las administraciones públicas –dado el carácter eminentemente revisor u \r\r\nobjetivo del modelo de justicia administrativa establecido en la Ley de 1966-, \r\r\nque por su materialidad y el régimen jurídico aplicable, deben ser conocidas \r\r\ny resueltas por la jurisdicción laboral al encontrarse regidas por el Derecho \r\r\ndel Trabajo –individual o colectivo-. Por el carácter vinculante que tiene, \r\r\nincluso, la parte considerativa de las sentencias constitucionales, debe, en \r\r\nadelante, la Sala Primera de Casación, si tuviere que aplicar el artículo 4°, \r\r\ninciso a), de la Ley Reguladora de la Jurisdicción \r\r\nContencioso-Administrativa, tomar nota de las razones vertidas en esta \r\r\nsentencia para revertir la línea jurisprudencial o interpretativa que ahora se \r\r\ndeclara inconstitucional, admitiendo la interpretación conforme con el \r\r\nartículo 49 constitucional del numeral de ley impugnado. Por estas razones, \r\r\nestima esta Sala que la norma impugnada no resulta, por sí misma, \r\r\ninconstitucional, por lo que tal extremo debe ser desestimado. Lo que sí \r\r\nresulta inconstitucional, como se apuntó, en el considerando precedente, es \r\r\nla interpretación que ha efectuado de la norma la Sala Primera de Casación \r\r\ndesde el año 2001.\n\r\r\n\nIX.- COROLARIO. En mérito de las razones expuestas se impone \r\r\ndeclarar parcialmente con lugar las acciones de inconstitucionalidad \r\r\nacumuladas, según se indica en la parte dispositiva.\n\r\r\n\nPOR TANTO:\n\r\r\n\nSe declaran parcialmente con lugar las acciones acumuladas. Se declara \r\r\ninconstitucional el artículo 3°, inciso a), del Código Procesal \r\r\nContencioso-Administrativo (Ley No. 8508 de 28 de abril de 2006) y la \r\r\njurisprudencia de la Sala Primera de Casación de la Corte Suprema de \r\r\nJusticia que, en aplicación del artículo 4°, inciso a), de la Ley Reguladora de \r\r\nla Jurisdicción Contencioso-Administrativa, remitía a la jurisdicción laboral \r\r\ncualquier controversia relacionada con una relación de empleo público al \r\r\nconsiderarla “netamente laboral”, aunque el justiciable pretendiera, \r\r\nmaterialmente, impugnar la disconformidad sustancial o invalidez de una \r\r\nconducta administrativa o manifestación específica de la función \r\r\nadministrativa con el ordenamiento jurídico administrativo, surgida en una \r\r\nrelación estatutaria. En cuanto a la impugnación del artículo 4°, inciso a), de \r\r\nla Ley Reguladora de la Jurisdicción Contencioso Administrativa se \r\r\ndesestiman las acciones acumuladas. Esta declaratoria de \r\r\ninconstitucionalidad tiene efectos declarativos y retroactivos a la fecha de \r\r\nvigencia de la norma y la jurisprudencia impugnadas, sin perjuicio de los \r\r\nderechos adquiridos de buena fe, las relaciones y situaciones jurídicas \r\r\nconsolidadas por prescripción, caducidad o sentencia pasada en autoridad \r\r\nde cosa juzgada material. Publíquese íntegramente en el Boletín Judicial y \r\r\nreséñese en el Diario Oficial La Gaceta. Notifíquese a la Procuraduría \r\r\nGeneral de la República, los accionantes, los coadyuvantes y las autoridades \r\r\njudiciales que conocen del asunto previo. Comuníquese a la presidencia de \r\r\nla Asamblea Legislativa y de la Sala Primera de Casación de la Corte \r\r\nSuprema de Justicia. \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n Ana Virginia Calzada M. \n\r\r\n\nPresidenta\n\r\r\n\n \n\r\r\n\n \n\r\r\n\n Luis Paulino Mora M. Gilbert Armijo S. \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n Ernesto Jinesta L. Fernando Cruz C. \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n \n\r\r\n\n Fernando Castillo V. Aracelly Pacheco S.\n\r\r\n\n \n\r\r\n\n801/199/ibj.-",
  "body_en_text": "Exp. No. 08-012174-0007-CO\n\nRes. No. 2010009928\n\nCONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at fifteen hours on June ninth, two thousand ten.\n\nConsolidated actions of unconstitutionality, the first (No. 08-012174-0007-CO), filed by CÉSAR HINES CÉSPEDES, identity card No. 7-061-989, ENRIQUE ROJAS FRANCO, identity card No. 1-390-1250, and DIEGO MOYA MEZA, identity card No. 1-1065-0968, against the case law of the First Chamber of the Supreme Court of Justice that remits, based on subject matter, to the labor jurisdiction, proceedings whose object is the nullity of administrative acts connected to a public employment relationship issued based on Article 4, subsection a), of the Ley Reguladora de la Jurisdicción Contencioso Administrativa, which provision is also challenged, and, by connection, against Article 3, subsection a), of the Código Procesal Contencioso-Administrativo, Law No. 8508 of April 25, 2006, insofar as it excludes public employment matters from the cognizance of said jurisdiction; the second action (No. 09-008798-0007-CO), filed by MANRIQUE JIMÉNEZ MEZA, identity card No. 1-487-250, against subsection a) of Article 3 of the Código Procesal Contencioso-Administrativo, Law No. 8508 of April 25, 2006, and, subsidiarily, against the interpretation that the First Chamber of the Supreme Court of Justice has given in favor of remitting public employment matters to the labor jurisdiction. Also participating in the action are the PROCURADURÍA GENERAL DE LA REPÚBLICA and the INSTITUTO NACIONAL DE VIVIENDA Y URBANISMO.\n\nWHEREAS:\n\n1.- By brief filed with the Secretariat of the Chamber at 7:51 a.m. on September 8, 2008 (folios 1-56), César Hines Céspedes, identity card No. 7-061-989, Enrique Rojas Franco, identity card No. 1-390-1250, and Diego Moya Meza, identity card No. 1-1065-968, the latter two stating they act as directing attorneys in the judicial proceedings of Mrs. Lilliana Alfaro Rojas, in judicial file No. 05-000677-163-CA, and of Lidia González Mora, in judicial proceeding No. 00-000337-163-CA, sought a declaration of unconstitutionality of the case law of the First Chamber of the Supreme Court of Justice that remits, based on subject matter, to the labor jurisdiction, proceedings whose object is the nullity of administrative acts connected to a public employment relationship, and, by connection, of Article 3, subsection a), of the Código Procesal Contencioso-Administrativo, Law No. 8508 of April 25, 2006, insofar as it excludes public employment matters from the cognizance of said jurisdiction, and, for the same reason, of Article 4, subsection a), of the Ley Reguladora de la Jurisdicción Contencioso-Administrativa, No. 3667 of March 12, 1966. The provisions are challenged because, in the claimants' view, the First Chamber of the Supreme Court of Justice has maintained a jurisprudential position that has instituted differentiated treatment for public employment relationships derived from employment contracts existing between public officials and the Public Administration, causing a violation of the underlying legal relationship that gives rise to or is the reason for the existence of the principal relationship, which is of an administrative nature, thereby infringing the provisions of Article 49 of the Political Constitution. Article 3, subsection a), of the new Código Procesal Contencioso Administrativo is also unconstitutional, since it establishes that the Administrative and Civil Treasury Jurisdiction shall not hear claims related to the conduct of the Public Administration in matters of public employment relations, which shall fall under the cognizance of the labor jurisdiction. In this case, just as was established by Article 4, subsection a), of the former Ley Reguladora de la Jurisdicción Contencioso Administrativa (also challenged), the Political Constitution is flagrantly violated, specifically the cited Article 49, which clearly delimits the scope and specific purpose of the administrative jurisdiction. The essence of the new Código Procesal Contencioso Administrativo, expressed in the legislator's intent embodied in Article 3, subsection a), of this normative body, is the same as was maintained in the Ley Reguladora de la Jurisdicción Contencioso Administrativa, exactly in Article 4, subsection a), of its articles, which is why both criteria represent the arbitrariness reflected in the disregard of what is established by Article 49 of the Constitution.\n\n2.- By resolution of the Presidency of the Chamber at 10:15 a.m. on October 22, 2008 (folio 51), the claimants were warned to present a document proving the capacity in which they appeared; a certified copy of the pleading in which they invoked the unconstitutionality they request, within a pending matter; and sufficient references to the case law they challenge.\n\n3.- By brief filed at 1:12 p.m. (folio 53), claimants Enrique Rojas Franco and Diego Moya Meza indicated they were filing the documents to comply with the warning.\n\n4.- By resolution of the Presidency of the Chamber at 11:30 a.m. on December 18, 2008 (folio 111), leave was granted for this action of unconstitutionality.\n\n5.- The legal notices were published in Judicial Bulletins numbers 15, 16, and 17 of January 22, 23, and 26, 2009 (folio 115).\n\n6.- By brief filed with the Secretariat of the Chamber at 3:20 p.m. on January 28, 2009 (folios 116-151), Ana Lorena Brenes Esquivel, in her capacity as Procuradora General de la República, recommended granting the action and finding the challenged provisions unconstitutional. The Procuradora clarified, in the first place, that the content of this action of unconstitutionality fully coincides with the arguments set forth by claimant César Hines in action of unconstitutionality No. 06-013862-0007-CO, also filed by him; consequently, the current report is based on the one rendered in that file. She did not address standing. On the merits, she indicated that Article 49 of the Political Constitution exclusively attributes judicial review of the legality of the administrative function to the administrative jurisdiction. Public employment relations are legal-administrative relations. Consequently, the case law of the First Chamber that attributes cognizance of disputes over the public employment relationship to the labor jurisdiction, as well as the legal provisions on which it is based, are indeed unconstitutional. In effect, she adds, the administrative jurisdiction was created as a distinct jurisdiction within the Judicial Branch; the distinction does not originate from the nature of the persons, but from the object of protection. Its task is to guarantee the legality of the actions of public administrations vis-à-vis the administered party and to protect the rights of the latter. No other jurisdiction can exercise review in those same terms. On the other hand, the Procuraduría continues, the public employment relationship is administrative, as derived from Articles 191 and 192 of the Political Constitution, distinct from the ordinary labor relationship. This is also contemplated in Articles 111 and 112 of the Ley General de la Administración Pública and has been reiterated by this Chamber in several judgments. Now, the challenged provisions have not distinguished in any way the nature of the relationship. They implicitly presume that every employment relationship in the public sector is of a labor nature, disregarding what was previously noted. Reasons of convenience have been alleged, says the Procuraduría, for the labor jurisdiction to hear and resolve administrative matters; however, these are not acceptable, since, in accordance with Article 49 of the Constitution, only within the administrative jurisdiction is it possible to create a tribunal specializing in public employment matters. Finally, the Procuraduría argues that only when the employment relationship, in the public sector, is governed by labor law, can the labor jurisdiction hear it. This situation arises, for example, in public enterprises governed by private law. In any case, even in this last situation, the managerial and oversight classes are excepted. In sum, the Procuraduría concludes, the challenged provisions are indeed unconstitutional and it requests that they be so declared, but that a period of 3 to 5 years be granted for the Legislative Assembly to enact a law establishing a section within the administrative jurisdiction responsible for resolving conflicts related to public employment.\n\n7.- By brief filed with the Secretariat of the Chamber at 3:03 p.m. on February 4, 2009 (folios 152-163), María del Carmen Redondo Solís, General Manager of the Instituto Nacional de Vivienda y Urbanismo, answered the hearing. She indicated that she finds no defects of unconstitutionality in the challenged provisions. The labor jurisdiction also protects principles contained in the Political Constitution. On the other hand, it does not conform to the principle of swift and complete justice for the employee to have to first seek the nullity of the act and then demand the labor extremes in the labor forum. In the specific case, the relationship with the dismissed employee was strictly labor in nature. It was originally filed before the administrative jurisdiction, which suspended the act, and the former employee was therefore reinstated. Subsequently, by decision of the Second Chamber of the Supreme Court of Justice, the matter was assigned to the labor jurisdiction. Regarding the particular case of Lidia González Mora, this Chamber has already even ruled on an amparo appeal. It also did so, generally, on the restructuring that the institute underwent. Legal relationships do not present themselves in a pure form, and it is clear that the State becomes involved in a series of activities, including private ones. There is no unconstitutionality whatsoever in the labor jurisdiction hearing disputes arising from an employment relationship that the State has established with a person.\n\n8.- By brief filed with the Secretariat of the Chamber at 3:29 p.m. on February 10, 2009 (folios 167-171), Luis Fernando Pérez Morais filed an active joint appearance. He indicated that he filed an administrative action against the State, but the Administrative Court declared itself without jurisdiction, following the case law challenged in this action. He considers that there are issues, such as the demand for compensation, that are not included within the object of a labor proceeding. He considers, consequently, that the challenged provisions are contrary to Article 49 of the Political Constitution.\n\n9.- By brief filed with the Secretariat of the Chamber at 3:17 p.m. on February 12, 2009 (folios 173-175), Jorge Fisher Aragón filed an active joint appearance. He indicated that Maykel Segura López filed a proceeding against the State before the Administrative Court, but it declared itself without jurisdiction by virtue of the challenged provisions, which he considers contrary to Article 49 of the Political Constitution.\n\n10.- By brief filed with the Secretariat of the Chamber at 3:20 p.m. on February 12, 2009 (folios 179-183), Eduardo López Arroyo, special judicial attorney-in-fact of Víctor Hugo Salas Brenes, filed an active joint appearance. He indicated that the latter filed a request, before the Administrative Tribunal, for an atypical interim measure, in a proceeding against the Caja Costarricense de Seguro Social, which is charging him employer contributions, with which he disagrees. However, the Tribunal indicated that it is possibly a case where a lack of jurisdiction based on subject matter arises. He considers that it concerns the nullity of an act that does not comply with legality, which is proper to the administrative jurisdiction.\n\n11.- By resolution at 10:20 a.m. on February 18, 2009 (folio 217), the hearings granted to the Procuraduría General de la República and the Instituto Nacional de Vivienda y Urbanismo were deemed answered. Likewise, the active joint appearances indicated above were deemed filed. Finally, this action of unconstitutionality was assigned.\n\n12.- By brief filed at 8:32 a.m. on April 14, 2009 (folio 241), [Name 001] filed an active joint appearance, since he filed an identical action, but it was rejected for formal reasons.\n\n13.- By brief filed with the Secretariat of the Chamber at 8:55 a.m. on February 16, 2009 (folio 242), Alvin Villavicencio Coronado, whose signature is not authenticated, complained about the filing of this action of unconstitutionality.\n\n14.- By brief filed at 1:30 p.m. on May 18, 2009 (folio 248), Noemy Campos Solórzano stated that the Labor Court of the Second Judicial Circuit of San José stayed a proceeding in which she is a party, and whose resolution is urgent, as it concerns her pension. She requested that said case be excluded from the stay, so that the Court could render judgment.\n\n15.- By brief filed at 11:50 a.m. on June 10, 2009 (folios 249-250), Cristino Herrera Trejos, whose signature does not appear authenticated, requested that this action be resolved, as he is a party to a proceeding pending in the labor forum, which was stayed due to this unconstitutionality proceeding.\n\n16.- By brief filed at 8:45 a.m. on June 11, 2009 (folio 255), Alvin Villavicencio Coronado, whose signature is not authenticated, requested the prompt dispatch of this proceeding, as he is a party to a proceeding that is stayed by virtue of this action of unconstitutionality.\n\n17.- By brief filed at 9:22 a.m. on June 15, 2009 (folio 256), Anabelle Cordero Montero, Judicial Assistant of the Labor Court of the Second Judicial Circuit of San José, forwarded files No. 00-000337-0163-CA and No. 08-000644-1027-CA.\n\n18.- By brief filed at 12:12 p.m. on September 25, 2009 (folio 257), Luis Antonio Quesada M., whose signature is not authenticated, requested the prompt dispatch of this proceeding, as he is a party to a proceeding that is stayed by virtue of this action of unconstitutionality.\n\n19.- By brief filed at 3:54 p.m. on September 29, 2009 (folio 258), Ana María Madriz Gamboa requested the prompt dispatch of this proceeding, as she is a party to a proceeding that is stayed by virtue of this action of unconstitutionality.\n\n20.- By brief filed at 11:08 a.m. on June 10, 2009 (folios 264-291), Manrique Jiménez Meza, in his capacity as attorney-in-fact of José Manuel Ulate Avendaño, filed an action of unconstitutionality against subsection a) of Article 3 of the Código Procesal Contencioso-Administrativo, challenged in this action, and, subsidiarily, against the case law of the First Chamber of the Supreme Court of Justice in favor of remitting public employment matters to the labor jurisdiction (judgments No. 742-C-2006, No. 607-C-01, and No. 769-C-2007), to which file No. 09-008798-0007-CO was assigned. Regarding standing, he argued that his represented party, in his capacity as Mayor of the Municipality of Heredia, is the defendant in proceeding No. 08-000766-1027-CA filed by the Contraloría General de la República before the Administrative and Civil Treasury Tribunal, for the purpose of annulling administrative agreements for the payment of seniority bonuses to his represented party. He argued that, in said proceeding, his represented party alleged the unconstitutionality of the challenged provisions as a means to defend his rights. On the merits, he argued that the provision attacked in the present proceeding, whether in its letter, content, or interpretation, violates the following articles of the Political Constitution: Article 11 (duty of subordination of public officials to the Law and the Constitution as primordial law); 39 and 41 (due process, insofar as the justiciable party is forced to resort to labor jurisdictional competence when their claims are proper to administrative law and administrative procedural law for the safeguard of their legitimate interests and subjective rights); 49 (principle of autonomy of the administrative jurisdiction); Articles 70 and 74 (insofar as the labor jurisdiction is created in relation to social rights of an inalienable rank, without this jurisdiction being able to resolve matters related to extremes proper to administrative law and the administrative jurisdiction, in which situations could arise where rights and interests are waivable); the principle of reasonableness, because, in his judgment, it is not reasonable for the rule of law to be violated by law or by its interpretation and for the fulfillment of the justiciable parties' claims to be prevented, whether in the strictly labor dynamic or in the properly administrative one, with the dogmatic exclusion of one for the exclusive benefit of the other. Proportionality, because leaving the administrative jurisdiction excluded when the claims have a strict link with this jurisdiction and not with the other, labor-type one, constitutes a denial of justice to the detriment of the justiciable parties and their freedom of choice, according to the claims in each proceeding. He added, finally, that dogmatically presuming that any and all administrative conduct or legal-administrative relationship related to public employment is, imperatively, the exclusive domain of labor jurisdictional competence, also contradicts the principle of swift and complete justice and the rights of justiciable parties who claim, in one or the other jurisdiction, labor or perhaps administrative extremes. Therefore, he principally requests the unconstitutionality of Article 3, subsection a), of the Código Procesal Contencioso Administrativo. Subsidiarily, he alleged the unconstitutionality of the interpretation that the First Chamber of the Supreme Court of Justice has given in favor of remitting public employment matters to the labor jurisdiction, for which he cited judgments 742-C-2006 of 10:05 a.m. on October 5, 2006, 607-C-01 of 10:09 a.m. on August 10, 2001, and 769-C-2007 of 3:20 p.m. on October 31, 2007.\n\n21.- By resolution No. 2009-010543 of 2:44 p.m. on July 1, 2009 (folios 297-300), the issuance of the final judgment in action No. 09-008798-0007-CO was reserved pending resolution of action No. 08-012174-0007-CO.\n\n22.- By resolution No. 2009-015667 of 2:44 p.m. on October 7, 2009 (folio 302), resolution No. 2009-010543 was nullified and action No. 09-008798-0007-CO was ordered consolidated with the present one.\n\n23.- By brief filed at 11:05 a.m. on November 17, 2009 (folios 305-306), Rolando Chacón Ramírez, who is a party in a labor proceeding stayed by this action, requested that it be clarified that matters already being processed in the labor forum may continue until their conclusion.\n\n24.- By brief filed at 10:00 a.m. on February 1, 2010 (folios 309-310), Verny Cordero Fonseca, who says he is a party in a labor proceeding stayed by this action, requested that it be rejected and, in any case, that it be resolved promptly.\n\n25.- By brief filed at 2:00 p.m. on February 12, 2010 (folios 313-314), Jesús Araya Zúñiga and Ruth Camacho Jiménez requested to be considered active coadjuvants, as they are parties in a proceeding where the challenged provision is applied.\n\n26.- By brief filed at 10:30 a.m. on February 15, 2010 (folios 315-316), Verny Cordero Fonseca reiterated the brief he had already filed.\n\n27.- By brief filed at 11:07 a.m. on March 4, 2010 (folios 318-319), Eduardo Contreras Ramírez requested the prompt resolution of this action, as he is a party in a proceeding that is stayed by virtue of it.\n\n28.- By brief filed at 9:00 a.m. on April 13, 2010 (folio 320), Cristino Herrera Trejos, whose signature does not appear authenticated, reiterated his request for this action to be resolved.\n\n29.- By brief filed at 1:04 p.m. on April 14, 2010 (folio 321), Edgar Cubero Castro, whose signature does not appear authenticated, requested the prompt resolution of this proceeding, as it prevents the final issuance of the resolution in a labor proceeding in which he is a party.\n\n30.- By brief filed at 7:55 a.m. on April 21, 2010 (folios 325-329), Flor de María Flores Chavarría, whose signature does not appear authenticated, requested the prompt dispatch of this proceeding and that it be declared without merit, as it keeps labor proceedings paralyzed, in one of which she is a party.\n\n31.- By brief filed at 10:53 a.m. on May 12, 2010 (folio 330), Ana María Madriz Gamboa reiterated the request for the prompt dispatch of this proceeding.\n\n32.- In the processing of the proceeding, the prescriptions of law have been observed.\n\nJudge Jinesta Lobo is the Rapporteur; and,\n\nCONSIDERING:\n\nI.- STANDING AND ADMISSIBILITY OF THE ACTION OF UNCONSTITUTIONALITY. Article 75, paragraph 1, of the Constitutional Jurisdiction Law establishes as one of the requirements for filing an action of unconstitutionality, in the case of concrete review, the existence of a matter pending resolution before the courts, including habeas corpus or amparo, or in the procedure to exhaust the administrative route, as a reasonable means to protect the substantial legal situation that is deemed harmed. In this regard, this Constitutional Tribunal, in judgment No. 4190-95 of 11:33 a.m. on July 28, 1995, indicated the following:\n\n«(…) In the first place, it is a proceeding of an incidental nature, and not a direct or popular action, which means that the existence of a matter pending resolution —whether before the courts of justice or in the procedure to exhaust the administrative route— is required to access the constitutional forum, but in such a way that the action constitutes a reasonable means to protect the right considered harmed in the principal matter, so that what is resolved by the Constitutional Tribunal has a positive or negative impact on said pending proceeding, since it rules on the constitutionality of the provisions that must be applied in said matter; and only by exception does the legislation allow direct access to this forum —requirements of the second and third paragraphs of Article 75 of the Constitutional Jurisdiction Law (…)».\n\nIn the action of unconstitutionality No. 08-012174-0007-CO, the claimants originally claimed standing to file this action, citing, as base matters where they had invoked the unconstitutionality of the challenged provisions, the proceedings conducted before the administrative jurisdiction, in judicial files No. 05-000677-163-CA and No. 000337-163-CA. However, subsequently, in response to the warning from the Presidency of this Chamber to demonstrate, by means of certified copies, said standing, they omitted to provide the documents referring to the first of said proceedings and, instead, indicated No. 08-000644-1027-CA, filed by Francisco José Hernández Solano against the State. Thus, by resolution of 11:30 a.m. on December 18, 2009 (see folio 111), leave was granted for this action, based on proceedings No. 00-000337-0163-CA and No. 08-00644-1027-CA, both filed before the administrative jurisdiction and in which the competence, based on subject matter, of said jurisdiction is discussed, and in which, in effect, the unconstitutionality of the provisions challenged here was alleged (copies at folios 59-65 and 67-83). Both proceedings being pending resolution, this Tribunal considers that the claimants do have standing to bring this action of unconstitutionality. On the other hand, Manrique Jiménez Meza filed action of unconstitutionality No. 09-008798-0007-CO, consolidated with the present one, in which he claimed standing by virtue of having invoked the unconstitutionality of the challenged provisions in the proceeding being conducted under file No. 08-000766-1027-CA, which he effectively demonstrated (copies at folios 292-293). In another vein, since the challenged provisions are general provisions, it is possible, in accordance with Article 73 of the Constitutional Jurisdiction Law, to challenge them through this forum.\n\nII.- JOINT APPEARANCES. In accordance with Article 83 of the Constitutional Jurisdiction Law, within fifteen days following the first publication of the notice referred to in the second paragraph of Article 81 of this same law, “(…) those with a legitimate interest may appear within it, in order to assist in the arguments that may justify its admissibility or inadmissibility or to expand, as applicable, the grounds of unconstitutionality in relation to the matter that interests them.” In this case, the following three active joint appearances were filed within the legal period and, therefore, are admissible: Fernando Pérez Morais (folios 167-172), Jorge Fisher Aragón, representing Maykel Segura López (folios 173-175), and Eduardo López Arroyo, representing Hugo Salas Brenes (folios 179-1783). Also filed, in an untimely manner, and, therefore, not admitted, are the active joint appearance filed by [Name 001] (folio 241) and the passive joint appearance raised by Alvin Villavicencio Coronado (folio 242).\n\nIII.- OBJECT OF THE CONSOLIDATED ACTIONS OF UNCONSTITUTIONALITY. Both actions of unconstitutionality coincide in challenging Article 3, subsection a), of the Código Procesal Contencioso-Administrativo, Law No. 8508 of April 24, 2006, insofar as it provides that claims related to administrative conduct in matters of public employment relations shall fall under the cognizance of the labor jurisdiction. Additionally, in the first action filed, No. 08-012174-0007-CO, the case law rendered by the First Chamber of Cassation is attacked, in light of Article 4, subsection a), of the Ley Reguladora de la Jurisdicción Contencioso-Administrativa No.\n\n3667 of March 12, 1966, insofar as it refers any controversy arising within a public or statutory employment relationship to the knowledge and resolution of the labor jurisdiction, which is why the cited provision of the repealed Law Regulating the Contentious-Administrative Jurisdiction is also challenged.\n\nIV.- CONSTITUTIONAL REGULATION OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION AND THE CONSTITUTIONAL ATTRIBUTION OF COMPETENCE. The original constituent and the reform power addressed defining the material competence and, consequently, the extension and scope of two jurisdictions essential to the Social and Democratic Rule of Law. Indeed, provisions 10 and 48 establish the material competence of the constitutional jurisdiction and, in provision 49, that of the contentious-administrative jurisdiction. This makes manifest, in the will of the original constituent and the reform power, the transcendence of both the control of constitutionality and of legality of the public powers in order to guarantee the effective enjoyment and exercise of the fundamental and human rights enshrined, respectively, in the constitutional text and the instruments of Public International Law. Without any doubt, such constitutional precepts embody what doctrine has called the sovereign clause of the Constitutional Rule of Law. With regard, particularly, to the contentious-administrative jurisdiction, Article 49 of the Constitution, after the partial reform by virtue of Law No. 3124 of June 25, 1963, provides as follows:\n\n“The contentious-administrative jurisdiction is established as an attribution of the Judicial Power, with the object of guaranteeing the legality of the administrative function of the State, its institutions, and any other public law entity.\n\nDeviation of power shall be grounds for challenging administrative acts.\n\nThe law shall protect, at least, the subjective rights and legitimate interests of the governed parties.”\n\nFrom the literal transcription of the constitutional precept, the following can be highlighted:\n\n1°) The derived constituent or reform power opted for a “judicialist” model of administrative justice, that is, entrusting a specialized jurisdictional order of the Judicial Power with the competence and attribution to exercise oversight of the legality of the administrative function, that is, its substantial conformity or adaptation to the block of legality. This system offers considerable guarantees and comparative advantages for the individual seeking justice, such as specialization, which, accompanied by the judicial career established infra-constitutionally, represents a true guarantee of correctness and of compliance with the constitutional imperative contained in provision 41 of the Constitution of \"full justice.\"\n\n2°) The reform power defined, with clear clarity, the material competence of the contentious-administrative jurisdiction, indicating that its object is \"to guarantee the legality of the administrative function.\" It should be noted that the constitutional norm does not distinguish, so that this specialized jurisdictional order is responsible for the oversight of any specific manifestation of the administrative function, without exceptions. The derived constituent thus enshrined a plenary and universal administrative justice, preventing any redoubts or areas of the administrative function from being exempt from the control or oversight of legality. The \"administrative function\" is an indeterminate legal concept, used by the reform power since 1963, which comprises or encompasses any specific or concrete manifestation thereof, that is, any administrative conduct - by action or omission - (e.g., formal activity, material actions, and formal and material omissions), as well as the complementary, more dynamic and flexible figure of the administrative-legal relationship.\n\n3°) The derived constituent or reform power established a constitutional reservation of the material competence of the contentious-administrative jurisdiction by decreeing that its object is \"to guarantee the legality of the administrative function,\" which is why the ordinary legislator, in the exercise of its freedom of conformation or configuration, cannot attribute that competence to another jurisdictional order that is not the contentious-administrative one, since, if it did so, it would be emptying the institutional guarantee and the fundamental right enshrined in Article 49 of the Constitution of its content. On this particular point and, upon better consideration, this Constitutional Court varies or reverses the thesis set forth in Votes Nos. 3095-94 of 15:57 hrs. of August 3, 1994, 7540-94 of 17:42 hrs. of December 21, both of 1994, 5686-95 of 15:39 hrs. of October 18, 1995, and 14999-2007 of 15:06 hrs. of October 17, 2007. The foregoing means that when a claimant pursues a claim to question the invalidity or substantial non-conformity with the administrative-legal order of an administrative conduct or any singular manifestation of the administrative function (formal or material omission, formal activity or material action, or administrative-legal relationship), the contentious-administrative jurisdiction must necessarily hear and resolve it. Obviously, if the claim, by its material content, even if related to some administrative conduct or specific manifestation of the administrative function – insofar as a public entity or organ is involved – is governed by the labor, family, or agrarian legal regime, it must be heard and resolved by those jurisdictional organs, because it does not, properly speaking, question the substantial conformity or non-conformity of the administrative function or conduct with the administrative-legal order, which is what Article 49 of the Constitution reserves for the contentious-administrative jurisdiction. This Constitutional Court considers that the determining criteria for delimiting the competential scope of the contentious-administrative jurisdiction from other specialized jurisdictional orders – which, henceforth, must be taken into consideration by the ordinary jurisdiction – will be, then, the following: 1°) The material or substantial content of the claim and 2°) the applicable legal regime; so that if the substantial conformity or non-conformity of a specific manifestation of the administrative function with the block of legality is discussed, the conflict of interest will, necessarily, be heard by the contentious-administrative jurisdiction.\n\n4°) The control of legality enshrined in provision 49 of the Constitution is projected, as indicated, to the entire administrative function carried out by any public entity or organ, that is, to all public administrations, without exception. For this reason, the first paragraph of the constitutional precept under examination concludes with a residual or general formula, indicating that it comprises the function carried out both by the central administration – State – and by \"any other public law entity.\"\n\n5°) The derived constituent opted for a mixed administrative justice, because the first paragraph, by defining the object of the contentious-administrative jurisdictional order - \"to guarantee the legality of the administrative function\" -, must be complemented, ineluctably, with the final paragraph, when it prescribes that the law shall provide protection, at a minimum, to subjective rights and legitimate interests – without distinguishing, regarding the latter, so that the protection of both personal and collective interests, whether corporate or diffuse, is admissible. Consequently, the contentious-administrative jurisdiction, according to the Law of the Constitution, was instituted both to ensure the legality of the administrative function and for the effective protection of the substantial legal situations of the governed parties against the public powers. Thus, constitutionally, an objective and subjective role of the contentious-administrative jurisdiction is combined.\n\nV.- CERTAIN ADMINISTRATIVE CONDUCTS RELATED TO A PUBLIC EMPLOYMENT RELATIONSHIP AS A SPECIFIC MANIFESTATION OF THE ADMINISTRATIVE FUNCTION. Article 49 of the Constitution establishes a plenary and universal contentious-administrative jurisdiction that allows the claimant to impugn or attack any conduct or manifestation of the administrative function before that jurisdictional order. Among the possible specific manifestations of the administrative function, constitutionally challengeable before the contentious-administrative venue, are, obviously, those conducts of the public administrations within the framework or context of a public or statutory employment relationship, unquestionably governed by Administrative Law or of an administrative-legal nature, as can be deduced from provisions 191, 192 of the Constitution, 111 and 112 of the General Law of Public Administration, and the constitutional case law that informs them (Votes of this Constitutional Court Nos. 1696-92, 4453-2000, 244-2001, and 14416-2006). Consequently, the ordinary legislator cannot radically exclude - totally and absolutely - from the knowledge and resolution of the contentious-administrative jurisdiction all administrative conduct in the matter of public employment relationships, since, on such a point, it has no freedom of disposition, because it is bound by the material competence defined and reserved in Article 49 of the Constitution. From the foregoing, one cannot conclude either that all administrative conduct, in public employment matters, must be heard and resolved before the contentious-administrative jurisdiction, because there will be claims and points that, due to their material content and the applicable legal regime, must, inevitably, be ventilated before the labor jurisdiction, by reason of its specific material competence.\n\nVI.- UNCONSTITUTIONALITY OF ARTICLE 3, SUBSECTION A), OF THE CONTENTIOUS-ADMINISTRATIVE PROCEDURE CODE. Provision 3, subsection a), of the Contentious-Administrative Procedure Code (Law No. 8508 of April 24, 2006), provides as follows:\n\n“The Contentious-Administrative and Civil Treasury Jurisdiction shall not hear the following claims:\n\na) Those related to the conduct of the Public Administration in matters of public employment relationships, which shall be heard by the labor jurisdiction (…)”\n\nThe challenged precept excludes radically and absolutely – without exception – from the knowledge and resolution of the contentious-administrative jurisdiction, any claim related to administrative conduct within the framework of a statutory relationship, thereby clearly transgressing the Law of the Constitution and, particularly, Article 49 of the Constitution, which reserved exclusively, as its material competence, to that jurisdictional order \"to guarantee the legality of the administrative function.\" The challenged legislative text does not admit, by its closed literal tenor, an interpretation in conformity with the Law of the Constitution and the necessary distinction between claims that, due to their material content and the applicable legal regime, must be heard and resolved, whether by the contentious-administrative jurisdiction or the labor jurisdiction. As noted supra, when the claimant seeks to discuss the substantial non-conformity or invalidity of an administrative conduct or specific manifestation of the administrative function with the administrative-legal order, the matter must be ventilated, owing to the reservation and constitutional imperative of Article 49, before the contentious-administrative jurisdiction. In essence, the claimant has the constitutional guarantee to challenge any conduct that is a manifestation of the administrative function before the contentious-administrative jurisdiction, it being the case that there are conducts that occur within a public employment relationship that are a specific expression of the general concept of the \"administrative function.\" On the other hand, there will be claims that, due to their substantial content and the applicable legal regime, must be heard and resolved by the labor jurisdiction, given its competential specialty and the need to apply, to the specific case, the dogmatic categories, institutions, institutes, principles, and particular hermeneutic tools of that legal discipline. Thus, by way of example and without claiming exhaustiveness, the labor jurisdiction must hear and resolve – even if the issue is related to the administrative conduct or function exercised by a public entity – matters that are typically or materially labor-related, such as the appropriateness or not and the calculation for the payment of the Christmas bonus, vacations, notice, and severance pay, matters concerning the recognition of retirement or a pension or occupational hazards, controversies that arise in the field of individual and collective Labor Law (e.g., socio-economic conflicts), everything related to the exercise of the right to strike or work stoppage, etc. In the same vein, it must be recognized that in the case of employees tasked with activities subject to the ordinary law of public enterprises or of economic services carried out by a public administration, or simple laborers, workers, or employees who do not participate in the public management of the respective public entity, that is, those doctrine calls \"workers of the public administration,\" the controversies arising must be heard and resolved by the labor jurisdiction, since it does not involve, in the strict sense, a public official, servant, or employee (Articles 111, paragraph 2, and 112, paragraph 2, of the General Law of Public Administration), given that any conduct emanating from the public entity, in such a context, will not be subject to the administrative legal regime, nor can it be materially deemed an administrative-legal relationship. It is necessary to emphasize that the constituent opted for jurisdictional orders specialized by subject matter – at least up to a certain instance – as a guarantee of correctness and a means for achieving the constitutional imperative of prompt and full justice. While Article 41 of the Constitution enshrines the general right of access to the jurisdiction, later provisions 10, 48, 49, 70, and 153 of the fundamental norm clearly opt for the establishment of specialized jurisdictions. So that the claimant has the right to choose before which jurisdictional order it brings action, as long as the material nature of the claim and the applicable legal regime are congruent with the specialty – constitutional or legal – of the respective jurisdiction. This Constitutional Court does not overlook that in judicial practice, due to inadequate or defective representation or legal advice, claimants may make mistakes when bringing a claim or when combining them before a determined jurisdictional order; however, in such cases, the jurisdictional organ must proceed, with due promptness and procedural economy, to disaggregate the claims that, due to their substantial content and the applicable legal regime, should not be ventilated in that venue, as well as to give swift course to the admissible ones, if no other cause prevents it. In the same sense, upon the emergence of any conflict of competence, the jurisdictional organs involved and the First Chamber of Cassation, insofar as it serves as the Court of Conflicts between the contentious-administrative and labor jurisdictions, must be particularly diligent in processing and settling it to avoid any undue delay or unjustified postponement that significantly affects the fundamental right to prompt justice (Article 41 of the Constitution) or the human right contained in the American Convention to a process within a reasonable time (Article 8.1).\n\nVII.- UNCONSTITUTIONALITY OF THE CASE LAW OF THE FIRST CHAMBER OF CASSATION IN THE INTERPRETATION AND APPLICATION OF ARTICLE 4, SUBSECTION A), OF THE LAW REGULATING THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION WHEN RESOLVING CONFLICTS OF COMPETENCE BETWEEN THE LABOR AND CONTENTIOUS-ADMINISTRATIVE JURISDICTIONS. The claimants also challenge as unconstitutional the case law of the First Chamber of Cassation, when acting as the Court of Conflicts of competence between the labor and contentious-administrative jurisdictions, and, particularly, when applying provision 4, subsection a), of the Law Regulating the Contentious-Administrative Jurisdiction. The Contentious-Administrative Procedure Code, Law No. 8508 of April 24, 2006 – entered into force on January 1, 2008, according to the vacatio legis provided in Article 222 of that normative body – repealed the Law Regulating the Contentious-Administrative Jurisdiction No. 3667 of March 12, 1966 (Article 198 of the Contentious-Administrative Procedure Code), however, within the interim law provisions of the Contentious-Administrative Procedure Code, Transitory Provisions III and IV prescribed the following:\n\n“TRANSITORY III.- The regime for challenging acts that have become final in the administrative channel before the entry into force of this Code shall be governed by the legislation in force at that time.\n\nTRANSITORY IV.- Contentious-administrative proceedings and ordinary civil lawsuits attributed to the civil treasury jurisdiction, filed prior to the entry into force of this Code, whatever their procedural status, shall continue to be processed, in all their procedures and appeals, according to the norms that governed at the date of filing. For this purpose, the Contentious-Administrative and Civil Treasury Court shall continue with the processing of said matters until their conclusion, and the Contentious-Administrative Tribunal shall maintain the sections that are convenient to hear the impugnment lawsuits provided for in Articles 82 to 90 of the Law regulating the Contentious-Administrative Jurisdiction, and on appeal against the resolutions issued by the Contentious-Administrative and Civil Treasury Court.”\n\nIndependently of the interpretation that the ordinary jurisdiction may have given to these transitory norms, the truth of the matter is that they make manifest the ultra-activity of the Law Regulating the Contentious-Administrative Jurisdiction and of those judicial interpretations, in matters of competence conflicts, that were produced at the appropriate procedural moment and that could even be verified in the future regarding proceedings still pending under the repealed procedural legislation. Consequently, what is challenged is a case law pattern that continues to produce effects, without discarding the possibility that it may do so in the future for matters initiated under the formally repealed legislation not yet definitively concluded. Since the early Votes Nos. 185-95 of 16:35 hrs. of January 10, 1995, and 4587-97 of 15:45 hrs. of August 5, 1997, this Constitutional Court admitted, by way of normative integration, the unconstitutionality action against repeated criteria by jurisdictional organs that have created a case law pattern, given that Article 3 of the Law of the Constitutional Jurisdiction establishes that the Constitution shall be considered infringed when this results from the interpretation made by public authorities of legal norms and the legal effects they produce, all in accordance with the supreme object of the constitutional jurisdiction to guarantee the supremacy of the Law of the Constitution (Articles 10 of the Constitution and 1 of the Law of the Constitutional Jurisdiction). In the present case, the case law line established by the First Chamber of Cassation is challenged, starting from Resolution No. 607-C-01 of 10:09 hrs. of August 10, 2001, when resolving conflicts of competence between the labor and contentious-administrative jurisdictions and referring the matter to the former, even when it involves claims materially governed by Administrative Law (e.g., nullity of a dismissal act, reinstatement, and payment of damages), considering, broadly, that any controversy generated in public employment relationships is \"of a purely labor nature.\" For this purpose, a copy of the following resolutions from that judicial instance is provided: 770-C-2001 of 9:51 hrs. of October 3, 2001, 478-C-2005 of 9:40 hrs. of July 7, 2005, 742-C-2006 of 10:05 hrs. of October 5, 2006, and 769-C-2007 of 15:20 hrs. of October 31, 2007, whereby the requirement to accredit the case law pattern is deemed fulfilled. In light of the considerations expressed in the preceding whereas clauses, it is evident that the case law line of the First Chamber of Cassation that ordered, before the entry into force of the new Contentious-Administrative Procedure Code and in application of the Law Regulating the Contentious-Administrative Jurisdiction, to refer to the labor channel any proceeding in which a claim is brought within the framework of a statutory relationship, considering it a controversy of a \"purely labor nature,\" is, by all lights, unconstitutional for violating Article 49 of the Constitution. Indeed, as indicated, there will be claims that, due to their material or substantial nature and the applicable legal regime, although brought in the context of a public employment relationship, must be heard and resolved, by constitutional imperative (Article 49 of the Constitution), by the contentious-administrative jurisdiction, that is, all those in which a public official or servant questions the substantial conformity or validity of any specific manifestation of the administrative function or administrative conduct with the administrative-legal order.\n\nVIII.- ALLEGED UNCONSTITUTIONALITY OF ARTICLE 4, SUBSECTION A), OF THE LAW REGULATING THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION. Article 4, subsection a), of the repealed Law Regulating the Contentious-Administrative Jurisdiction (No. 3667 of March 12, 1966), which still continues to produce legal effects in proceedings initiated before the entry into force of the Contentious-Administrative Procedure Code, provided as follows:\n\n“The following shall not pertain to the Contentious-Administrative Jurisdiction:\n\na) Matters of a criminal nature and those other that, although related to acts of the Public Administration, correspond to the labor jurisdiction (…)”\n\nThis Constitutional Court considers that this precept of the Law Regulating the Contentious-Administrative Jurisdiction is not, per se, unconstitutional, given that, consistent with the competence constitutionally established and reserved for that jurisdictional order (\"to guarantee the legality of the administrative function\") in provision 49 of the Constitution, it admits the possibility that this specialized jurisdiction may hear and resolve certain controversies even in the context of a statutory or public employment relationship, so much so that the First Chamber of Cassation, before adopting the last case law line now challenged, maintained, to settle conflicts of competence between the labor and contentious-administrative venues, that the contentious-administrative judge could hear and resolve claims in which the validity of an administrative procedure or formal administrative act is challenged and the substantial legal situation is restored (in natura through reinstatement or by equivalent means through the payment of damages or back pay). Consequently, Article 4, subsection a), of the Law Regulating the Contentious-Administrative Jurisdiction had a more elastic content or a more open texture – in contrast to the rigidity and radicalness of Article 3, subsection a), of the Contentious-Administrative Procedure Code – that allowed interpretations in conformity with the Law of the Constitution and, in particular, with what is provided in Article 49 of the Constitution. In sum, from the challenged legislative text, it is possible to distinguish, with clear clarity, two types of claims – according to their material or substantial content and the applicable legal regime –, that is, those aimed at questioning the validity or substantial conformity of an administrative conduct with the administrative legal order and those that, although related to the formal conduct of public administrations – given the eminently reviewing or objective nature of the administrative justice model established in the 1966 Law –, which, by their materiality and the applicable legal regime, must be heard and resolved by the labor jurisdiction as they are governed by Labor Law – individual or collective. Due to the binding nature that even the whereas part of constitutional judgments has, the First Chamber of Cassation must, henceforth, if it has to apply Article 4, subsection a), of the Law Regulating the Contentious-Administrative Jurisdiction, take note of the reasons stated in this judgment to reverse the case law or interpretive line now declared unconstitutional, admitting the interpretation in conformity with Article 49 of the Constitution of the challenged legal provision. For these reasons, this Chamber considers that the challenged norm is not, in itself, unconstitutional, so that this point must be dismissed. What is unconstitutional, as noted in the preceding whereas clause, is the interpretation of the norm made by the First Chamber of Cassation since the year 2001.\n\nIX.- COROLLARY. By virtue of the reasons stated, it is necessary to declare the accumulated unconstitutionality actions partially granted, as indicated in the operative part.\n\nTHEREFORE:\n\nThe accumulated actions are partially granted. Article 3, subsection a), of the Contentious-Administrative Procedure Code (Law No. 8508 of April 28, 2006) is declared unconstitutional, as is the case law of the First Chamber of Cassation of the Supreme Court of Justice which, in application of Article 4, subsection a), of the Law Regulating the Contentious-Administrative Jurisdiction, referred any controversy related to a public employment relationship to the labor jurisdiction considering it \"purely labor,\" even if the claimant materially sought to challenge the substantial non-conformity or invalidity of an administrative conduct or specific manifestation of the administrative function with the administrative legal order, arising in a statutory relationship. As for the challenge of Article 4, subsection a), of the Law Regulating the Contentious-Administrative Jurisdiction, the accumulated actions are dismissed.\n\nThis declaration of unconstitutionality has declaratory and retroactive effects to the date the challenged norm and jurisprudence came into force, without prejudice to rights acquired in good faith, or legal relationships and situations consolidated by statute of limitations (prescripción), expiration (caducidad), or a judgment having the authority of material res judicata (sentencia pasada en autoridad de cosa juzgada material). Publish it in its entirety in the Boletín Judicial and summarize it in the Diario Oficial La Gaceta. Notify the Procuraduría General de la República, the plaintiffs, the coadjuvants, and the judicial authorities hearing the underlying matter. Communicate to the presidency of the Asamblea Legislativa and of the Sala Primera de Casación of the Corte Suprema de Justicia.\n\n\nAna Virginia Calzada M.\nPresidenta\n\n\nLuis Paulino Mora M.                                              Gilbert Armijo S.\n\n\nErnesto Jinesta L.                                               Fernando Cruz C.\n\n\nFernando Castillo V.                                             Aracelly Pacheco S.\n\n801/199/ibj.-\n\nHe added, finally, that to start dogmatically from the premise that any and all administrative conduct or legal-administrative relationship related to public employment is, imperatively, the exclusive purview of labor jurisdictional competence, also contradicts the principle of swift and complete justice and the rights of those seeking justice who may pursue, in one jurisdiction or the other, labor matters or perhaps administrative dispute matters. For this reason, he principally requests the unconstitutionality of Article 3, subsection a), of the Código Procesal Contencioso Administrativo. In the alternative, he alleged the unconstitutionality of the interpretation that the Sala Primera of the Corte Suprema de Justicia has given in favor of referring public employment matters to the labor jurisdiction, for which purpose he cited rulings 742-C-2006 of 10:05 a.m. on October 5, 2006, 607-C-01 of 10:09 a.m. on August 10, 2001, and 769-C-2007 of 3:20 p.m. on October 31, 2007.\n\n**21.-** By resolution No. 2009-010543 of 2:44 p.m. on July 1, 2009 (folios 297-300), the final judgment on the merits in Action No. 09-008798-0007-CO was reserved pending the resolution of Action No. 08-012174-0007-CO.\n\n**22.-** By resolution No. 2009-015667 of 2:44 p.m. on October 7, 2009 (folio 302), resolution No. 2009-010543 was annulled, and the joinder of Action No. 09-008798-0007-CO to the present action was ordered.\n\n**23.-** By brief filed at 11:05 a.m. on November 17, 2009 (folios 305-306), Rolando Chacón Ramírez, who is a party to a labor proceeding suspended due to this action, requested clarification that matters already being processed in the labor avenue may continue until their conclusion.\n\n**24.-** By brief filed at 10:00 a.m. on February 1, 2010 (folios 309-310), Verny Cordero Fonseca, who claims to be a party to a labor proceeding suspended due to this action, requested that it be rejected and that, in any event, it be resolved promptly.\n\n**25.-** By brief filed at 2:00 p.m. on February 12, 2010 (folios 313-314), Jesús Araya Zúñiga and Ruth Camacho Jiménez requested to be considered as active coadjuvants, being parties to a proceeding where the challenged rule is applied.\n\n**26.-** By brief filed at 10:30 a.m. on February 15, 2010 (folios 315-316), Verny Cordero Fonseca reiterated the brief he had already filed.\n\n**27.-** By brief filed at 11:07 a.m. on March 4, 2010 (folios 318-319), Eduardo Contreras Ramírez requested the prompt resolution of this action, as he is a party to a proceeding that is suspended by virtue of it.\n\n**28.-** By brief filed at 9:00 a.m. on April 13, 2010 (folio 320), Cristino Herrera Trejos, whose signature is not authenticated, reiterated his request for this action to be resolved.\n\n**29.-** By brief filed at 1:04 p.m. on April 14, 2010 (folio 321), Edgar Cubero Castro, whose signature is not authenticated, requested the prompt resolution of this proceeding, as it prevents the final issuance of the decision in a labor proceeding to which he is a party.\n\n**30.-** By brief filed at 7:55 a.m. on April 21, 2010 (folios 325-329), Flor de María Flores Chavarría, whose signature is not authenticated, requested the prompt dispatch of this proceeding and that it be declared without merit, since it keeps labor proceedings paralyzed, in one of which she is a party.\n\n**31.-** By brief filed at 10:53 a.m. on May 12, 2010 (folio 330), Ana María Madriz Gamboa reiterated the request for prompt dispatch of this proceeding.\n\n**32.-** The legal requirements have been observed in the processing of the proceeding.\n\nDrafted by Magistrate **Jinesta Lobo**; and,\n\n**CONSIDERING:**\n\n**I.- STANDING AND ADMISSIBILITY OF THE ACTION OF UNCONSTITUTIONALITY.** Section 75, paragraph 1, of the Ley de la Jurisdicción Constitucional establishes, as one of the prerequisites for filing an action of unconstitutionality, in the case of concrete review, the existence of a matter pending resolution before the courts, including habeas corpus or amparo, or in the procedure to exhaust the administrative avenue, as a reasonable means to protect the substantial legal situation deemed injured. In this regard, this Constitutional Court, in ruling No. 4190-95 of 11:33 a.m. on July 28, 1995, stated the following:\n\n\"(...) Firstly, it is a proceeding of an incidental nature, and not a direct or popular action, which means that the existence of a matter pending resolution - whether before the courts of justice or in the procedure to exhaust the administrative avenue - is required to access the constitutional avenue, but in such a way that the action constitutes a reasonable means to protect the right considered injured in the main matter, so that what is resolved by the Constitutional Court has a positive or negative impact on that pending proceeding, since it pronounces on the constitutionality of the rules that must be applied in that matter; and only by exception does legislation allow direct access to this avenue - prerequisites of paragraphs two and three of Article 75 of the Ley de la Jurisdicción Constitucional (...)\".\n\nIn the action of unconstitutionality No. 08-012174-0007-CO, the claimants originally claimed to have standing to file this action, indicating, as base cases where they had invoked the unconstitutionality of the challenged rules, the proceedings conducted before the administrative dispute jurisdiction, in court files No. 05-000677-163-CA and No. 000337-163-CA. However, subsequently, in response to the warning from the Presidency of this Chamber to demonstrate such standing through certified copies, they failed to provide the documents referring to the first of those proceedings and, instead, indicated No. 08-000644-1027-CA, filed by Francisco José Hernández Solano against the State. Therefore, by resolution of 11:30 a.m. on December 18, 2009 (see folio 111), this action was admitted, based on proceedings No. 00-000337-0163-CA and No. 08-00644-1027-CA, both filed before the administrative dispute jurisdiction and in which the subject-matter competence of said jurisdiction is discussed, and in which, in effect, the unconstitutionality of the rules challenged here was alleged (copies at folios 59-65 and 67-83). As both proceedings are pending resolution, this Court considers that the claimants do have standing to initiate this action of unconstitutionality. On the other hand, Manrique Jiménez Meza filed the action of unconstitutionality No. 09-008798-0007-CO, joined to the present one, in which he asserted standing by virtue of having invoked the unconstitutionality of the challenged rules in the proceeding processed under file No. 08-000766-1027-CA, which he duly demonstrated (copies at folios 292-293). In another vein, since the challenged rules are general provisions, they are indeed subject to challenge in this avenue, in accordance with Article 73 of the Ley de la Jurisdicción Constitucional.\n\n**II.- COADJUVANCIES.** In accordance with Article 83 of the Ley de la Jurisdicción Constitucional, within the fifteen days following the first publication of the notice referred to in the second paragraph of Article 81 of this same law, \"(...) those with a legitimate interest may appear within it, in order to coadyuvate in the arguments that could justify its admissibility or inadmissibility or to expand, as the case may be, the grounds for unconstitutionality in relation to the matter that interests them.\" In this case, the following three active coadjuvancies were filed within the legal deadline and are, therefore, admissible: Fernando Pérez Morais (folios 167-172), Jorge Fisher Aragón, on behalf of Maykel Segura López (folios 173-175), and Eduardo López Arroyo, on behalf of Hugo Salas Brenes (folios 179-1783). Furthermore, filed extemporaneously and, therefore, not admitted, are the active coadjuvancy filed by [Name 001] (folio 241) and the passive coadjuvancy brought by Alvin Villavicencio Coronado (folio 242).\n\n**III.- SUBJECT-MATTER OF THE JOINED ACTIONS OF UNCONSTITUTIONALITY.** Both actions of unconstitutionality coincide in challenging Article 3, subsection a), of the Código Procesal Contencioso-Administrativo, Law No. 8508 of April 24, 2006, inasmuch as it provides that claims related to administrative conduct in the area of public employment relations shall be heard by the labor jurisdiction. Additionally, in the first action filed, No. 08-012174-0007-CO, the jurisprudence handed down by the Sala Primera de Casación is challenged, in light of Article 4, subsection a), of the Ley Reguladora de la Jurisdicción Contencioso-Administrativa No. 3667 of March 12, 1966, inasmuch as it refers any dispute arising within a public or statutory employment relationship to the knowledge and resolution of the labor jurisdiction; therefore, the cited section of the repealed Ley Reguladora de la Jurisdicción Contencioso-Administrativa is also challenged.\n\n**IV.- CONSTITUTIONAL REGULATION OF THE ADMINISTRATIVE DISPUTE JURISDICTION AND THE CONSTITUTIONAL ATTRIBUTION OF JURISDICTION.** The original framer of the Constitution and the amending power undertook to define the subject-matter competence and, consequently, the extension and scope of two jurisdictions essential to the Social and Democratic Rule of Law. Indeed, in sections 10 and 48, the subject-matter competence of the constitutional jurisdiction is established, and in section 49, that of the administrative dispute jurisdiction. The foregoing makes evident, in the will of the original framer and of the amending power, the transcendence of both the control of constitutionality and of the legality of public powers for the sake of guaranteeing the effective enjoyment and exercise of the fundamental and human rights enshrined, respectively, in the constitutional text and in the instruments of Public International Law. Without a doubt, such constitutional precepts embody what legal doctrine has called the regal clause of the Constitutional Rule of Law. With regard, particularly, to the administrative dispute jurisdiction, Article 49 of the Constitution, after the partial reform by virtue of Law No. 3124 of June 25, 1963, provides the following:\n\n\"The administrative dispute jurisdiction is established as an attribution of the Judicial Branch, with the purpose of guaranteeing the legality of the administrative function of the State, its institutions, and every other public law entity.\n\nDeviation of power shall be a ground for challenging administrative acts.\n\nThe law shall protect, at least, the subjective rights and the legitimate interests of the administered.\"\n\nFrom the literal transcription of the constitutional precept, the following should be highlighted:\n\n1°) The derived framer or amending power opted for a \"judicialist\" model of administrative justice, that is, entrusting to a specialized jurisdictional order of the Judicial Branch the competence and attribution to exercise oversight of the legality of the administrative function, that is, its substantial conformity or compatibility with the body of legality. This system offers considerable guarantees and comparative advantages for those seeking justice, such as specialization, which, accompanied by the judicial career established at an infra-constitutional level, represents a true guarantee of correctness and compliance with the constitutional imperative contained in section 41 of the Constitution for \"complete justice.\"\n\n2°) The amending power defined, with meridian clarity, the subject-matter competence of the administrative dispute jurisdiction, by indicating that its purpose is \"to guarantee the legality of the administrative function.\" It should be noted that the constitutional rule does not distinguish, so that this specialized jurisdictional order is responsible for the oversight of any specific manifestation of the administrative function, without exceptions. The derived framer thus enshrined a plenary and universal administrative justice, preventing there from being any redoubts or areas of the administrative function exempt from control or oversight of legality. The \"administrative function\" is an indeterminate legal concept, used by the amending power since 1963, which includes or encompasses any specific or concrete manifestation thereof, that is, all administrative conduct - by action or omission - (e.g., formal activity, material actions, and formal and material omissions), as well as the complementary, more dynamic and flexible figure of the legal-administrative relationship.\n\n3°) The derived framer or amending power established a constitutional reservation of the subject-matter competence of the administrative dispute jurisdiction by stipulating that its purpose is \"to guarantee the legality of the administrative function,\" a reason for which the ordinary legislator, in the exercise of its freedom of configuration or structuring, cannot attribute that competence to any other jurisdictional order that is not the administrative dispute one, since, if it did so, it would be emptying the institutional guarantee and the fundamental right enshrined in Article 49 of the Constitution of its content. On this particular point, and upon better consideration, this Constitutional Court varies or reverses the thesis set forth in Votos Nos. 3095-94 of 3:57 p.m. on August 3, 1994, 7540-94 of 5:42 p.m. on December 21, 1994, 5686-95 of 3:39 p.m. on October 18, 1995, and 14999-2007 of 3:06 p.m. on October 17, 2007. The foregoing means that when a person seeking justice brings a claim to challenge the invalidity or substantial non-conformity with the administrative legal order of an administrative conduct or any singular manifestation of the administrative function (formal or material omission, formal activity or material action, or legal-administrative relationship), the administrative dispute jurisdiction must inevitably hear and resolve it. Obviously, if the claim, due to its material content, even if related to some administrative conduct or specific manifestation of the administrative function – insofar as a public entity or body intervenes – is governed by the labor, family, or agrarian legal regime, it must be heard and resolved by those jurisdictional bodies, since what is properly questioned is not the substantial conformity or non-conformity of the administrative function or conduct with the administrative legal order, which is what Article 49 of the Constitution reserves to the administrative dispute jurisdiction. This Constitutional Court considers that the determining criteria to delineate the scope of competence of the administrative dispute jurisdiction from other specialized jurisdictional orders – which, henceforth, must be taken into consideration by the ordinary jurisdiction – will be, therefore, the following: 1°) The material or substantial content of the claim and 2°) the applicable legal regime; so that if the substantial conformity or non-conformity of a specific manifestation of the administrative function with the body of legality is disputed, the conflict of interest shall necessarily be heard by the administrative dispute jurisdiction.\n\n4°) The control of legality enshrined in section 49 of the Constitution extends, as indicated, to the entire administrative function carried out by any public entity or body, that is, to all public administrations, without exception. For this reason, the first paragraph of the constitutional precept under examination concludes with a residual or general formula, by indicating that the function carried out by both the central administration – State – and \"every other public law entity\" is included.\n\n5°) The derived framer opted for a mixed administrative justice, since the first paragraph, by defining the purpose of the administrative dispute jurisdictional order -\"to guarantee the legality of the administrative function\"-, must be complemented, ineluctably, with the in fine paragraph, by prescribing that the law shall provide protection, at least, to subjective rights and legitimate interests – without distinguishing, regarding the latter, so that the protection of both personal and collective ones, be they corporate or diffuse, is admissible. Consequently, the administrative dispute jurisdiction, according to the Law of the Constitution, was instituted both to ensure the legality of the administrative function and to effectively protect the substantial legal situations of the administered vis-à-vis the public powers.\n\nThus, constitutionally, an objective and subjective role of the administrative litigation jurisdiction (jurisdicción contencioso-administrativa) is combined.\n\n**V.- CERTAIN ADMINISTRATIVE CONDUCTS RELATED TO A PUBLIC EMPLOYMENT RELATIONSHIP AS A SPECIFIC MANIFESTATION OF THE ADMINISTRATIVE FUNCTION.** Article 49 of the Constitution establishes a plenary and universal administrative litigation jurisdiction (jurisdicción contencioso-administrativa) that allows the claimant to challenge or attack any conduct or manifestation of the administrative function before that jurisdictional body. Among the possible specific manifestations of the administrative function, constitutionally challengeable before the administrative litigation venue (sede contencioso-administrativa), are, obviously, those conducts of public administrations within the framework or context of a public or statutory employment relationship, unquestionably governed by Administrative Law or of an administrative-legal nature, as derived from articles 191 and 192 of the Constitution, 111 and 112 of the General Law on Public Administration (Ley General de la Administración Pública), and the constitutional case law that informs them (Votes of this Constitutional Court Nos. 1696-92, 4453-2000, 244-2001, and 14416-2006). Consequently, the ordinary legislator cannot radically—totally and absolutely—exclude from the cognizance and resolution of the administrative litigation jurisdiction (jurisdicción contencioso-administrativa) all administrative conduct in matters of public employment relationships, since it has no freedom of disposition over this extreme, because it is bound by the material competence defined and reserved in Article 49 of the Constitution. From the above, it cannot be concluded either that all administrative conduct in matters of public employment must be heard and resolved before the administrative litigation jurisdiction (jurisdicción contencioso-administrativa), since there will be **claims (pretensiones) and extremes that, due to their material content and the applicable legal regime**, must inevitably be litigated before the labor jurisdiction, by reason of its specific material competence.\n\n**VI.- UNCONSTITUTIONALITY OF ARTICLE 3, SUBSECTION a), OF THE CONTENTIOUS-ADMINISTRATIVE PROCEDURAL CODE (CÓDIGO PROCESAL CONTENCIOSO-ADMINISTRATIVO).** Article 3, subsection a), of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo) (Law No. 8508 of April 24, 2006), provides the following:\n\n*\"The Contencioso-Administrativa and Civil de Hacienda Jurisdiction shall not hear the following claims:*\n\n*a) Those related to the conduct of the Public Administration in matters of public employment relationships, which shall be of the cognizance of the labor jurisdiction (…)\"*\n\nThe challenged precept radically and absolutely—without exception—excludes from the cognizance and resolution of the administrative litigation jurisdiction (jurisdicción contencioso-administrativa) any claim (pretensión) related to administrative conduct within the framework of a statutory relationship, thereby flagrantly transgressing the Law of the Constitution and, particularly, Article 49 of the Constitution, which reserved exclusively, as material competence, to that jurisdictional body *\"guaranteeing the legality of the administrative function\"*. The challenged legislative text does not admit, by its closed literal tenor, an interpretation conforming to the Law of the Constitution and the necessary distinction between **claims (pretensiones) that, due to their material content and the applicable legal regime**, must be of the cognizance and resolution, either of the administrative litigation jurisdiction (jurisdicción contencioso-administrativa) or the labor jurisdiction. As noted supra, when the claimant seeks to discuss the substantial non-conformity or invalidity of an administrative conduct or specific manifestation of the administrative function with the administrative-legal system, the matter must be litigated, by the reservation and constitutional imperative of Article 49, before the administrative litigation jurisdiction (jurisdicción contencioso-administrativa). In essence, the claimant has the constitutional guarantee to challenge any conduct that is a manifestation of the administrative function before the administrative litigation jurisdiction (jurisdicción contencioso-administrativa), it being that there are conducts that occur within a public employment relationship that are a specific expression of the general concept of the *\"administrative function\"*. On the other hand, there will be **claims (pretensiones) that, due to their substantial content and the applicable legal regime**, must be heard and resolved by the labor jurisdiction, given its competence specialty and the need to apply, to the specific case, the dogmatic categories, institutions, institutes, principles, and particular hermeneutic tools of that legal discipline. Thus, by way of example and without claim of exhaustiveness, the labor jurisdiction must hear and resolve—even if the issue is related to the administrative conduct or function exercised by a public entity—typically or materially labor extremes, such as the appropriateness or not and the calculation for the payment of the year-end bonus (aguinaldo), vacation days, prior notice, and severance pay (auxilio de cesantía), matters concerning the recognition of a retirement or pension or professional risks, controversies that arise in the field of individual and collective Labor Law (e.g., conflicts of an economic-social nature), everything related to the exercise of the right to strike or work stoppage, etc. In the same vein, it is necessary to recognize that in the case of employees in charge of activities subject to the common law of public enterprises or economic services developed by a public administration or of simple laborers, workers, or employees who do not participate in the public management of the respective public entity, that is, those whom doctrine calls \"workers of the public administration,\" the controversies that arise must be heard and resolved by the labor jurisdiction, as it is not, in the strict sense, a public official, servant, or employee (Articles 111, paragraph 2, and 112, paragraph 2, of the General Law on Public Administration (Ley General de la Administración Pública)), given that any conduct emanating from the public entity, in such context, will not be subject to the administrative legal regime, nor can it be considered, materially, as an administrative-legal relationship. It is necessary to highlight that the constitutional assembly decided on specialized jurisdictional bodies based on the subject matter—at least up to a certain instance—as a guarantee of correctness and a means to achieve the constitutional imperative of prompt and due justice. Although Article 41 of the Constitution enshrines the general right of access to the jurisdiction, then Articles 10, 48, 49, 70, and 153 of the fundamental norm clearly opt for the establishment of specialized jurisdictions. Thus, the claimant has the right to choose before which jurisdictional body they bring action, as long as the **material nature of the claim (pretensión) and the applicable legal regime** are congruent with the specialty—constitutional or legal—of the respective jurisdiction. This Constitutional Court does not overlook that in judicial practice, due to inadequate or defective legal representation or advice, claimants may make mistakes when filing a claim (pretensión) or when combining them before a specific jurisdictional body; however, in such cases, the jurisdictional body must proceed, with due speed and procedural economy, to separate the **claims (pretensiones) that, due to their substantial content and the applicable legal regime**, should not be litigated in that venue, as well as to give agile course to those that are appropriate, if no other cause prevents it. In the same sense, upon the emergence of any conflict of competence, the jurisdictional bodies involved and the First Chamber of Cassation (Sala Primera de Casación), insofar as it acts as the Court of Conflicts between the administrative litigation (contencioso-administrativa) and labor jurisdictions, must be particularly diligent in processing and resolving it to avoid any undue dilation or unjustified delay that significantly affects the fundamental right to prompt justice (Article 41 of the Constitution) or the human right contained in the American Convention to a process within a reasonable time (Article 8.1).      \n\n**VII.- UNCONSTITUTIONALITY OF THE CASE LAW OF THE FIRST CHAMBER OF CASSATION (SALA PRIMERA DE CASACIÓN) IN THE INTERPRETATION AND APPLICATION OF ARTICLE 4, SUBSECTION a), OF THE REGULATORY LAW OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION (LEY REGULADORA DE LA JURISDICCIÓN CONTENCIOSO-ADMINISTRATIVA) WHEN RESOLVING CONFLICTS OF COMPETENCE BETWEEN THE LABOR AND CONTENTIOUS-ADMINISTRATIVE JURISDICTIONS.** The petitioners also challenge as unconstitutional the case law of the First Chamber of Cassation (Sala Primera de Casación), when acting as the Court of Conflicts of competence between the labor and administrative litigation (contencioso-administrativa) jurisdictions, and, particularly, when applying Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa). The Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo), Law No. 8508 of April 24, 2006—which entered into force on January 1, 2008, according to the *vacatio legis* established in Article 222 of that regulatory body—repealed the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) No. 3667 of March 12, 1966 (Article 198 of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo)), however, within the interim law provisions of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo), Transitory Provisions III and IV stipulated the following:\n\n*\"TRANSITORIO III.- The regime for challenging acts that have become final in the administrative stage before the effective date of this Code shall be governed by the legislation in force at that time.*\n\n*TRANSITORIO IV.- The contentious-administrative proceedings and ordinary trials attributed to the civil de Hacienda avenue, filed prior to the entry into force of this Code, whatever their procedural stage, shall continue to be substantiated, in all their procedures and remedies, by the rules that governed at the date of initiation. For this purpose, the Juzgado de lo Contencioso-Administrativo y Civil de Hacienda shall continue processing said matters until their conclusion, and the Tribunal Contencioso-Administrativo shall maintain the sections that are convenient to hear the challenge claims provided for in Articles 82 to 90 of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa), and on appeal from the resolutions issued by the Juzgado de lo Contencioso-Administrativo y Civil de Hacienda.\"*\n\nRegardless of the interpretation that the ordinary jurisdiction may have given to these transitory norms, the truth of the matter is that they make clear the ultra-activity of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) and of those judicial interpretations, in matters of conflicts of competence, that were produced at the appropriate procedural moment and that could even occur in the future with respect to proceedings still pending under the repealed adjective legislation. Consequently, what is challenged is a jurisprudential guideline that continues to produce effects, without ruling out the possibility that it may do so in the future for matters initiated based on the formally repealed legislation that are not yet definitively concluded. Since the early Votes Nos. 185-95 of 4:35 p.m. on January 10, 1995, and 4587-97 of 3:45 p.m. on August 5, 1997, this Constitutional Court admitted, via normative integration, the action of unconstitutionality against the reiterated criteria of jurisdictional bodies that have created a jurisprudential pattern, since Article 3 of the Law of Constitutional Jurisdiction (Ley de la Jurisdicción Constitucional) establishes that the Constitution shall be deemed infringed when this results from the interpretation that public authorities make of legal norms and the legal effects it produces, all in accordance with the supreme object of constitutional jurisdiction to guarantee the supremacy of the Law of the Constitution (Articles 10 of the Constitution and 1 of the Law of Constitutional Jurisdiction (Ley de la Jurisdicción Constitucional)). In this specific case, what is challenged is the jurisprudential line established by the First Chamber of Cassation (Sala Primera de Casación), starting from resolution No. 607-C-01 of 10:09 a.m. on August 10, 2001, when resolving conflicts of competence between the labor and administrative litigation (contencioso-administrativa) jurisdictions and referring the matter to the first, even when dealing with claims (pretensiones) materially governed by Administrative Law (e.g., nullity of a dismissal act, reinstatement, and payment of damages and losses), by considering, *grosso modo*, that any controversy generated in public employment relationships is \"of a purely labor nature.\" For this purpose, copies of the following resolutions of that judicial instance are provided: 770-C-2001 of 9:51 a.m. on October 3, 2001, 478-C-2005 of 9:40 a.m. on July 7, 2005, 742-C-2006 of 10:05 a.m. on October 5, 2006, and 769-C-2007 of 3:20 p.m. on October 31, 2007, whereby the requirement to prove the jurisprudential guideline is considered fulfilled. In light of the considerations made in the preceding recitals, it is evident that the jurisprudential line of the First Chamber of Cassation (Sala Primera de Casación) that ordered, before the entry into force of the new Contentious-Administrative Procedural Code (Código Procesal Contencioso Administrativo), and in application of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa), to refer to the labor avenue any process in which a claim (pretensión) is filed within the framework of a statutory relationship, considering it a controversy \"of a purely labor nature,\" is, most clearly, unconstitutional as it breaches Article 49 of the Constitution. Indeed, as noted, there will be **claims (pretensiones) that, due to their material or substantial nature and the applicable legal regime**, even if filed in the context of a public employment relationship, must be heard and resolved, by constitutional imperative (Article 49 of the Constitution), by the administrative litigation jurisdiction (jurisdicción contencioso-administrativa), that is, all those in which a public official or servant questions the substantial conformity or validity of any specific manifestation of the administrative function or administrative conduct with the administrative-legal system.\n\n**VIII.- ALLEGED UNCONSTITUTIONALITY OF ARTICLE 4, SUBSECTION a), OF THE REGULATORY LAW OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION (LEY REGULADORA DE LA JURISDICCIÓN CONTENCIOSO ADMINISTRATIVA).** Article 4, subsection a), of the repealed Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) (No. 3667 of March 12, 1966), which still continues to produce legal effects in proceedings commenced before the entry into force of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo), provided the following:\n\n*\"The following shall not correspond to the Contencioso-Administrativa Jurisdiction:*\n\n*a) Criminal matters and those others that, although related to acts of the Public Administration, correspond to the labor jurisdiction (…)\"*    \n\nThis Constitutional Court considers that this precept of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) is not, *per se*, unconstitutional, since, in a manner consistent with the constitutionally established and reserved competence for that jurisdictional body *(\"guaranteeing the legality of the administrative function\")* in Article 49 of the Constitution, it admits the possibility that this specialized jurisdiction may hear and resolve certain controversies even in the context of a statutory or public employment relationship; so much so, that the First Chamber of Cassation (Sala Primera de Casación), before adopting the latest jurisprudential line that is now being challenged, maintained, to resolve conflicts of competence between the labor and administrative litigation (contencioso-administrativa) venues, that the administrative litigation judge (juez contencioso-administrativo) could hear and resolve claims (pretensiones) in which the validity of an administrative procedure or a formal administrative act was challenged and the substantial restitution of the legal situation was sought (*in natura* through reinstatement or by equivalent means through the payment of damages and losses or lost wages). Consequently, Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) had a more elastic content or a more open texture—in contrast to the rigidity and radicality of Article 3, subsection a), of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo)—that allowed interpretations conforming to the Law of the Constitution and, in particular, to the provisions of Article 49 of the Constitution. In sum, from the challenged legislative text it is possible to distinguish, with clear clarity, two types of **claims (pretensiones)—according to their material or substantial content and the applicable legal regime—**, that is, those aimed at questioning the validity or substantial conformity of an administrative conduct with the administrative-legal system, and those that, although related to the formal conduct of public administrations—given the eminently reviewing or objective nature of the administrative justice model established in the 1966 Law—, which, due to their materiality and the applicable legal regime, must be heard and resolved by the labor jurisdiction, being governed by Labor Law—individual or collective. Given the binding nature of even the recital part of constitutional judgments, the First Chamber of Cassation (Sala Primera de Casación) must, henceforth, if it has to apply Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa), take note of the reasons set forth in this judgment to reverse the jurisprudential or interpretative line that is now declared unconstitutional, admitting the interpretation conforming to Article 49 of the Constitution of the challenged legal article. For these reasons, this Chamber considers that the challenged norm is not, in itself, unconstitutional, and therefore, this extreme must be dismissed. What is unconstitutional, as noted in the preceding recital, is the interpretation that the First Chamber of Cassation (Sala Primera de Casación) has made of the norm since the year 2001.\n\n**IX.- COROLLARY.** By virtue of the reasons set forth, it is necessary to declare partially with merit the accumulated actions of unconstitutionality, as indicated in the operative part.\n\n**THEREFORE:**\n\nThe accumulated actions are declared partially with merit. Article 3, subsection a), of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo) (Law No. 8508 of April 28, 2006) is declared unconstitutional, as is the case law of the First Chamber of Cassation (Sala Primera de Casación) of the Supreme Court of Justice that, in application of Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa), referred any controversy related to a public employment relationship to the labor jurisdiction by considering it \"purely labor,\" even though the claimant materially sought to challenge the substantial non-conformity or invalidity of an administrative conduct or specific manifestation of the administrative function with the administrative-legal system, arising in a statutory relationship. As for the challenge to Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso Administrativa), the accumulated actions are dismissed. This declaration of unconstitutionality has declaratory and retroactive effects to the date of effectiveness of the challenged norm and case law, without prejudice to rights acquired in good faith, and legal relationships and situations consolidated by prescription, expiration, or judgment that carries the authority of material res judicata. Publish fully in the Boletín Judicial and summarize in the Diario Oficial La Gaceta. Notify the Procuraduría General de la República, the petitioners, the coadjuvants, and the judicial authorities hearing the prior matter.\n\nCommunicate to the presidency of the Legislative Assembly and to the First Chamber of Cassation of the Supreme Court of Justice.\n\nAna Virginia Calzada M.\n\nPresidenta\n\nLuis Paulino Mora M. Gilbert Armijo S.\n\nErnesto Jinesta L. Fernando Cruz C.\n\nFernando Castillo V. Aracelly Pacheco S.\n\n801/199/ibj.-\n\nAdded by judgment 011034-10.&nbsp; Jurisprudence of the First Chamber of the Supreme Court of Justice that refers, by reason of subject matter, to the labor jurisdiction, proceedings that seek the nullity of administrative acts linked to a public employment relationship\n\",\n\"previousdocs\": [],\n\"nextdocs\": []\n}\n],\n\"contenidosInteresOrden\": \"4\",\n\"despacho\": \"Sala Constitucional\",\n\"despachoOrden\": \"8\",\n\"enteSistematizador\": \"SALA CONSTITUCIONAL\",\n\"esCambioCriterio\": \"0\",\n\"esCriterioUnificador\": \"0\",\n\"esNotaSeparada\": \"0\",\n\"esProtegida\": \"1\",\n\"esResolucionClave\": \"1\",\n\"esResolucionEstructural\": \"0\",\n\"esResolucionOral\": \"0\",\n\"esResolucionRelevante\": \"1\",\n\"esVotoSalvado\": \"0\",\n\"expediente\": \"080121740007CO\",\n\"fecha\": \"2010-06-09\",\n\"formatoDocumento\": \"ESCRITO\",\n\"hora\": \"15:00\",\n\"id\": \"sen-1-0007-473953\",\n\"numeroDocumento\": \"09928\",\n\"redactor\": \"Ernesto Jinesta Lobo\",\n\"sentenciasRelacionadas\": [...],\n\"sourceName\": \"Documentos\",\n\"subNumeroDocumento\": \"1\",\n\"tipoDocumento\": \"SNT\",\n\"tipoInformacion\": \"Resolución Judicial\",\n\"tipoResolucion\": \"De Fondo\",\n\"resultado\": \"Con lugar parcialmente\",\n\"controlCons\": \"Sentencia estimatoria\",\n\"tipoTexto\": \"1\",\n\"previousdocs\": [],\n\"nextdocs\": [],\n\"html\": \"\n\n**Exp. No. 08-012174-0007-CO**\n\n**Res. No. 2010009928**\n\n**SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE \nJUSTICIA. San José, at fifteen hours on June ninth, two thousand \nten.**\n\nAccumulated actions of unconstitutionality, the first (No. \n08-012174-0007-CO), filed by **CÉSAR HINES CÉSPEDES**, \nID No. 7-061-989, **ENRIQUE ROJAS FRANCO**, ID No. \n1-390-1250 and **DIEGO MOYA MEZA**, ID No. 1-1065-0968, against the \njurisprudence of the First Chamber of the Supreme Court of Justice that refers, \nby reason of subject matter, to the labor jurisdiction, proceedings that seek the \nnullity of administrative acts linked to a public employment relationship issued based on Article 4, subsection a), of the \nLey Reguladora de la Jurisdicción Contencioso Administrativa, a provision which is \nalso challenged, and, by connection, against Article 3, subsection a), of the \nCódigo Procesal Contencioso-Administrativo, Law No. 8508 of April 25, \n2006, insofar as it excludes matters of public employment from the cognizance of said jurisdiction; the second action (No. 09-008798-0007-CO), \nfiled by **MANRIQUE JIMÉNEZ MEZA**, ID No. 1-487-250, \nagainst subsection a) of Article 3 of the Código Procesal \nContencioso-Administrativo, Law No. 8508 of April 25, 2006, and, \nsubsidiarily, against the interpretation that the First Chamber of the Supreme \nCourt of Justice has given in favor of referring public employment matters \nto the labor jurisdiction. Also intervening in the action is the \n**PROCURADURÍA GENERAL DE LA REPÚBLICA** and the\n**INSTITUTO \nNACIONAL DE VIVIENDA Y URBANISMO.**\n\n**RESULTANDO:**\n\n**1.-** By brief filed in the Secretariat of the Chamber at 7:51 a.m. \non September 8, 2008 (folios 1-56), César Hines Céspedes, ID No. \n7-061-989, Enrique Rojas Franco, ID No. 1-390-1250, and Diego Moya \nMeza, ID No. 1-1065-968, the latter two acting, they state, in \ntheir capacity as directing attorneys in the judicial proceedings of Mrs. \nLilliana Alfaro Rojas, in judicial file No. 05-000677-163-CA, and of \nLidia González Mora, in judicial proceeding No. 00-000337-163-CA, \nrequested a declaration of unconstitutionality of the jurisprudence of the \nFirst Chamber of the Supreme Court of Justice that refers, by reason of the \nsubject matter, to the labor jurisdiction, proceedings that seek the \nnullity of administrative acts linked to a public employment relationship and, by connection, of Article 3, subsection a), of the Código Procesal \nContencioso-Administrativo, Law No. 8508 of April 25, 2006, in \nwhat excludes matters of public employment from the cognizance of said jurisdiction and, for the same reason, of Article 4, subsection a), of the \nLey Reguladora de la Jurisdicción Contencioso-Administrativa, No. 3667 of \nMarch 12, 1966. The provisions are challenged insofar as, in the opinion of the \nplaintiffs, the First Chamber of the Supreme Court of Justice has been \nmaintaining a jurisprudential position establishing a \ndifferential treatment of public employment relationships arising from employment \ncontracts existing between public officials and the public Administration, \ncausing a violation of the underlying legal relationship that gives rise to or \nreason for the existence of the principal relationship, which is of an administrative nature and thereby infringing the provisions of Article 49 of the Political Constitution. Provision \n3, subsection a), of the new Código Procesal Contencioso \nAdministrativo is also unconstitutional, given that it establishes that the \nContencioso Administrativo y Civil de Hacienda Jurisdiction shall not hear \nclaims related to the conduct of the Public Administration in \nmatters of public employment relations, which shall be heard \nby the labor jurisdiction. In this case, just as established by provision \n4, subsection a), of the former Ley Reguladora de la Jurisdicción Contencioso \nAdministrativa (also questioned), the Political Constitution is flagrantly violated, specifically the cited provision 49 which clearly \ndefines the scope and specific purpose of the contentious-administrative jurisdiction. The \nessence of the new Código Procesal Contencioso Administrativo, expressed \nin the legislator's intention embodied in Article 3, subsection a), of the \nnormative body, is the same as that maintained in the Ley \nReguladora de la Jurisdicción Contencioso Administrativa, exactly in \nprovision 4, subsection a), of its articles, for which reason both criteria \nentail an arbitrariness reflected in the non-observance of the provisions of \nArticle 49 of the Constitution.\n\n**2.-** By ruling of the Presidency of the Chamber at 10:15 a.m.\n\nof October 22, 2008 (folio 51), the plaintiffs were warned to submit a document accrediting the representation under which they were appearing; a certified copy of the brief where they invoked the unconstitutionality they request, within a matter pending resolution, and sufficient references to the case law they challenge.\n\n**3.-** By a brief filed at 1:12 p.m. (folio 53), the plaintiffs Enrique Rojas Franco and Diego Moya Meza indicated they were submitting the documents to comply with the warning.\n\n**4.-** By a ruling of the Presidency of the Chamber at 11:30 a.m. on December 18, 2008 (folio 111), this acción de inconstitucionalidad was admitted for processing.\n\n**5.-** The legal notices were published in the Judicial Bulletins numbers 15, 16, and 17 of January 22, 23, and 26, 2009 (folio 115).\n\n**6.-** By a brief filed in the Secretariat of the Chamber at 3:20 p.m. on January 28, 2009 (folios 116-151), Ana Lorena Brenes Esquivel, in her capacity as Procuradora General de la República, recommended declaring the acción with merit and holding the challenged norms unconstitutional. The Procuradora first clarified that the content of this acción de inconstitucionalidad fully coincides with the arguments set forth by the plaintiff César Hines in acción de inconstitucionalidad No. 06-013862-0007-CO, also filed by him; consequently, the current report is based on the one rendered in that expediente. She did not address standing. On the merits, she indicated that Article 49 of the Constitución Política exclusively attributes judicial review of the legality of the administrative function to the contencioso-administrativa jurisdiction. Public employment relationships are legal-administrative relationships. Consequently, the case law of the Sala Primera that attributes jurisdiction over disputes regarding public employment relationships to the labor jurisdiction, as well as the legal provisions on which it is based, are indeed unconstitutional. In effect, she adds, the contencioso-administrativa jurisdiction was created as a distinct jurisdiction within the Poder Judicial; the distinction does not originate from the nature of the persons but from the object of protection. Its purpose is to guarantee the legality of the actions of public administrations vis-à-vis the administered party and to protect the rights of the latter. No other jurisdiction can exercise judicial review in those same terms. Further, the Procuraduría continues, the public employment relationship is administrative, as follows from Articles 191 and 192 of the Constitución Política, distinct from the common labor relationship. It is also so contemplated in Articles 111 and 112 of the Ley General de la Administración Pública, and this Chamber has reiterated it in various rulings. Now, the challenged norms have not in any way distinguished the nature of the relationship. They implicitly presume that every employment relationship in the public sector is of a labor nature, disregarding the foregoing. The Procuraduría states that reasons of convenience have been alleged for the labor jurisdiction to hear and resolve contencioso-administrativo matters; however, these are not admissible, since, in accordance with Article 49 of the Constitution, only within the contencioso-administrativa jurisdiction is it possible to create a court with specialization in public employment matters. Finally, the Procuraduría maintains that only when the employment relationship in the public sector is governed by labor law can the labor jurisdiction hear it. This scenario occurs, for example, in public companies governed by private law. In any case, the managerial and oversight classes are excepted in this latter scenario. In summary, the Procuraduría concludes that the challenged norms are indeed unconstitutional and requests that they be so declared, but that a period of 3 to 5 years be granted so that the Poder Legislativo may enact a law establishing a section within the contencioso-administrativa jurisdiction charged with resolving disputes related to public employment.\n\n**7.-** By a brief filed in the Secretariat of the Chamber at 3:03 p.m. on February 4, 2009 (folios 152-163), María del Carmen Redondo Solís, Gerente General of the Instituto Nacional de Vivienda y Urbanismo, responded to the hearing. She indicated that she finds no vices of unconstitutionality in the challenged norms. The labor jurisdiction also protects principles contained in the Constitución Política. Furthermore, it does not conform to the principle of swift and complete justice that the worker must first seek the annulment of the act and then, through the labor channel, demand the labor claims. In the specific case, the relationship with the dismissed official was strictly a labor one. It was originally filed before the contencioso-administrativa jurisdiction, which suspended the act, resulting in the former official being reinstated. Subsequently, by decision of the Sala Segunda de la Corte Suprema de Justicia, the matter was assigned to the labor jurisdiction. Regarding the particular case of Lidia González Mora, this Chamber has even already ruled on it in a recurso de amparo. It has also ruled generally on the restructuring suffered by the institute. Relationships in Law do not present themselves in a pure form, and it is clear that the State becomes involved in a series of activities, even private ones. There is no unconstitutionality whatsoever in the labor jurisdiction hearing disputes arising from a labor relationship that the State has established with a person.\n\n**8.-** By a brief filed in the Secretariat of the Chamber at 3:29 p.m. on February 10, 2009 (folios 167-171), Luis Fernando Pérez Morais filed an active joinder (coadyuvancia activa). He indicated that he had filed a contencioso-administrativa acción against the State, but the Juzgado Contencioso-Administrativo declared itself incompetent, following the case law challenged in this acción. He considers that there are issues, such as the demand for indemnification, that are not included within the scope of a labor proceeding. He therefore considers that the challenged norms are contrary to Article 49 of the Constitución Política.\n\n**9.-** By a brief filed in the Secretariat of the Chamber at 3:17 p.m. on February 12, 2009 (folios 173-175), Jorge Fisher Aragón filed an active joinder (coadyuvancia activa). He indicated that Maykel Segura López filed a proceeding against the State before the Juzgado Contencioso-Administrativo, but it declared itself incompetent by virtue of the challenged norms, which he considers contrary to Article 49 of the Constitución Política.\n\n**10.-** By a brief filed in the Secretariat of the Chamber at 3:20 p.m. on February 12, 2009 (folios 179-183), Eduardo López Arroyo, special judicial attorney-in-fact (apoderado especial judicial) of Víctor Hugo Salas Brenes, filed an active joinder (coadyuvancia activa). He indicated that the latter filed a request before the Tribunal Contencioso-Administrativo for an atypical precautionary measure (medida cautelar atípica) in a proceeding against the Caja Costarricense de Seguro Social, which is charging him employer contributions, with which he disagrees. However, the Tribunal indicated that it might be a case of lack of jurisdiction by reason of subject matter. He considers that it involves the annulment of an act that does not comply with legality, which is proper to the contencioso-administrativa jurisdiction.\n\n**11.-** By a ruling at 10:20 a.m. on February 18, 2009 (folio 217), the hearings granted to the Procuraduría General de la República and the Instituto Nacional de Vivienda y Urbanismo were considered answered. Likewise, the active joinders (coadyuvancias activas) indicated above were considered filed. Finally, this acción de inconstitucionalidad was assigned.\n\n**12.-** By a brief filed at 8:32 a.m. on April 14, 2009 (folio 241), [Nombre 001] filed an active joinder (coadyuvancia activa), as he had filed an identical acción, but it was rejected on procedural grounds.\n\n**13.-** By a brief in the Secretariat of the Chamber at 8:55 a.m. on February 16, 2009 (folio 242), Alvin Villavicencio Coronado, whose signature is not authenticated, complained about the filing of this acción de inconstitucionalidad.\n\n**14.-** By a brief filed at 1:30 p.m. on May 18, 2009 (folio 248), Noemy Campos Solórzano stated that the Juzgado de Trabajo of the II Circuito Judicial de San José suspended a proceeding in which she is a party, and whose resolution is urgent, as it pertains to her pension. She requested that said case be excluded from the suspension so that the Juzgado could rule.\n\n**15.-** By a brief filed at 11:50 a.m. on June 10, 2009 (folios 249-250), Cristino Herrera Trejos, whose signature does not appear authenticated, requested that this acción be resolved, as he is a party in a proceeding pending in the labor channel that was suspended due to this proceso de inconstitucionalidad.\n\n**16.-** By a brief filed at 8:45 a.m. on June 11, 2009 (folio 255), Alvin Villavicencio Coronado, whose signature is not authenticated, requested the prompt dispatch of this proceso, as he is a party in a proceeding that is suspended by virtue of this acción de inconstitucionalidad.\n\n**17.-** By a brief filed at 9:22 a.m. on June 15, 2009 (folio 256), Anabelle Cordero Montero, Judicial Assistant of the Juzgado de Trabajo of the II Circuito Judicial de San José, forwarded expedientes No. 00-000337-0163-CA and No. 08-000644-1027-CA.\n\n**18.-** By a brief filed at 12:12 p.m. on September 25, 2009 (folio 257), Luis Antonio Quesada M., whose signature is not authenticated, requested the prompt dispatch of this proceso, as he is a party in a proceeding that is suspended by virtue of this acción de inconstitucionalidad.\n\n**19.-** By a brief filed at 3:54 p.m. on September 29, 2009 (folio 258), Ana María Madriz Gamboa requested the prompt dispatch of this proceso, as she is a party in a proceeding that is suspended by virtue of this acción de inconstitucionalidad.\n\n**20.-** By a brief filed at 11:08 a.m. on June 10, 2009 (folios 264-291), Manrique Jiménez Meza, in his capacity as attorney-in-fact (apoderado) of José Manuel Ulate Avendaño, filed an acción de inconstitucionalidad against subparagraph a) of Article 3 of the Código Procesal Contencioso-Administrativo, challenged in this acción, and, subsidiarily, against the case law of the Sala Primera de la Corte Suprema de Justicia in favor of referring public employment matters to the labor jurisdiction (sentencias No. 742-C-2006, No. 607-C-01, and No. 769-C-2007), to which expediente No. 09-008798-0007-CO was assigned. Regarding standing, he argued that his represented party, in his capacity as Mayor of the Municipalidad de Heredia, is the defendant in proceeding No. 08-000766-1027-CA filed by the Contraloría General de la República before the Tribunal Contencioso-Administrativo y Civil de Hacienda, seeking to annul the administrative agreements for the payment of seniority bonuses (anualidades) to his represented party. He argued that, in said proceeding, his represented party raised the unconstitutionality of the challenged norms as a means to defend his rights. On the merits, he maintained that the norm challenged in the present proceso, whether in its letter, content, or interpretation, violates the following articles of the Constitución Política: Article 11 (duty of subordination of public officials to the Law of the Constitution as primordial law); 39 and 41 (due process, in that the litigant is forced to resort to labor jurisdictional competence when their claims are proper to administrative law and contencioso-administrativo procedural law for the safeguarding of their legitimate interests and subjective rights); 49 (principle of autonomy of the contencioso-administrativa jurisdiction); Articles 70 and 74 (insofar as the labor jurisdiction is created in relation to inalienable social rights, without this jurisdiction being able to resolve matters related to aspects proper to administrative law and the contencioso-administrativa jurisdiction, in which situations could arise where rights and interests are waivable); the principle of reasonableness, because, in his judgment, it is not reasonable for the rule of law to be violated by law or its interpretation and for the satisfaction of the litigants' claims to be prevented, whether in the strictly labor dynamic or in the properly contencioso-administrativa one, with the dogmatic exclusion of one to the exclusive benefit of the other. Proportionality, insofar as excluding the contencioso-administrativa jurisdiction when the claims have a strict connection with this jurisdiction and not with the other labor-type one constitutes a denial of justice to the detriment of litigants and their freedom of choice, according to the claims in each proceeding. He finally added that to dogmatically assume that each and every administrative action or legal-administrative relationship related to public employment is, imperatively, the exclusive domain of labor jurisdictional competence also contradicts the principle of swift and complete justice and the rights of litigants who seek, in one jurisdiction or the other, labor or perhaps contencioso-administrativo aspects. For this reason, he principally requests the unconstitutionality of Article 3, subparagraph a), of the Código Procesal Contencioso Administrativo. In a subsidiary manner, he alleged the unconstitutionality of the interpretation that the Sala Primera de la Corte Suprema de Justicia has given in favor of referring public employment matters to the labor jurisdiction, for which he cited sentencias 742-C-2006 at 10:05 a.m. on October 5, 2006, 607-C-01 at 10:09 a.m. on August 10, 2001, and 769-C-2007 at 3:20 p.m. on October 31, 2007.\n\n**21.-** By ruling No. 2009-010543 at 2:44 p.m. on July 1, 2009 (folios 297-300), the issuance of the final judgment on the merits in acción No. 09-008798-0007-CO was reserved pending resolution in acción No. 08-012174-0007-CO.\n\n**22.-** By ruling No. 2009-015667 at 2:44 p.m. on October 7, 2009 (folio 302), ruling No. 2009-010543 was annulled and it was ordered to consolidate acción No. 09-008798-0007-CO with the present one.\n\n**23.-** By a brief filed at 11:05 a.m. on November 17, 2009 (folios 305-306), Rolando Chacón Ramírez, who is a party in a labor proceeding suspended by this acción, requested that it be clarified that matters already being processed in the labor channel may continue until their conclusion.\n\n**24.-** By a brief filed at 10:00 a.m. on February 1, 2010 (folios 309-310), Verny Cordero Fonseca, who claims to be a party in a labor proceeding suspended by this acción, requested that it be rejected and, in any case, resolved promptly.\n\n**25.-** By a brief filed at 2:00 p.m. on February 12, 2010 (folios 313-314), Jesús Araya Zúñiga and Ruth Camacho Jiménez requested to be considered active coadjuvants (coadyuvantes activos), as they are a party in a proceeding where the challenged norm is applied.\n\n**26.-** By a brief filed at 10:30 a.m. on February 15, 2010 (folios 315-316), Verny Cordero Fonseca reiterated the brief he had already submitted.\n\n**27.-** By a brief filed at 11:07 a.m. on March 4, 2010 (folios 318-319), Eduardo Contreras Ramírez requested the prompt resolution of this acción, as he is a party in a proceeding that is suspended by virtue of it.\n\n**28.-** By a brief filed at 9:00 a.m. on April 13, 2010 (folio 320), Cristino Herrera Trejos, whose signature does not appear authenticated, reiterated his request for this acción to be resolved.\n\n**29.-** By a brief filed at 1:04 p.m. on April 14, 2010 (folio 321), Edgar Cubero Castro, whose signature does not appear authenticated, requested the prompt resolution of this proceso, as it prevents the final issuance of the ruling in a labor proceeding in which he is a party.\n\n**30.-** By a brief filed at 7:55 a.m. on April 21, 2010 (folios 325-329), Flor de María Flores Chavarría, whose signature does not appear authenticated, requested the prompt dispatch of this proceso and that it be declared without merit, as it keeps labor proceedings paralyzed, in one of which she is a party.\n\n**31.-** By a brief filed at 10:53 a.m. on May 12, 2010 (folio 330), Ana María Madriz Gamboa reiterated the request for the prompt dispatch of this proceso.\n\n**32.-** In the processing of the proceeding, the prescriptions of law have been observed.\n\nDrafted by Magistrate **Jinesta Lobo**; and,\n\n**WHEREAS:**\n\n**I.- STANDING AND ADMISSIBILITY OF THE ACCIÓN DE INCONSTITUCIONALIDAD.** Article 75, 1st paragraph, of the Ley de la Jurisdicción Constitucional establishes as one of the prerequisites for filing the acción de inconstitucionalidad, in the case of concrete review, the existence of a matter pending resolution before the courts, including hábeas corpus or amparo, or in the procedure for exhausting the administrative channel, as a reasonable means to protect the substantial legal situation deemed injured. In this regard, this Tribunal Constitucional, in sentencia No. 4190-95 at 11:33 a.m.\n\nof July 28, 1995, stated the following:\n\n\"(...) In the first place, it is a proceeding of an incidental nature, and not a direct or popular action (acción popular), which means that the existence of a pending matter—whether before the courts of justice or in the procedure for exhausting administrative remedies (agotar la vía administrativa)—is required to access the constitutional route, but in such a way that the action constitutes a reasonable means to protect the right considered injured in the main matter, so that the decision of the Constitutional Court (Tribunal Constitucional) has a positive or negative impact on that pending proceeding, since it rules on the constitutionality of the norms that must be applied in that matter; and only by exception does the legislation allow direct access to this route—presuppositions of the second and third paragraphs of Article 75 of the Constitutional Jurisdiction Law (Ley de la Jurisdicción Constitucional) (...)\".\n\nIn the unconstitutionality action (acción de inconstitucionalidad) No. 08-012174-0007-CO, the petitioners originally claimed standing (legitimados) to file this action, pointing to the proceedings before the contentious-administrative jurisdiction (jurisdicción contencioso-administrativa), in judicial case files No. 05-000677-163-CA and No. 000337-163-CA, as the base matters where they had invoked the unconstitutionality of the challenged norms. However, subsequently, in response to the warning (prevención) from the Presidency of this Chamber (Sala) to prove such standing through certified copies, they omitted to provide the documents related to the first of those proceedings and, instead, indicated No. 08-000644-1027-CA, filed by Francisco José Hernández Solano against the State. Therefore, by resolution of 11:30 a.m. on December 18, 2009 (see folio 111), this action was admitted, based on proceedings No. 00-000337-0163-CA and No. 08-00644-1027-CA, both filed before the contentious-administrative jurisdiction, in which the jurisdiction—by reason of subject matter—of said jurisdiction is discussed, and in which, indeed, the unconstitutionality of the norms challenged here was alleged (copies at folios 59-65 and 67-83). Both proceedings being pending resolution, this Court (Tribunal) considers that the plaintiffs are indeed standing (legitimados) to bring this unconstitutionality action. Furthermore, Manrique Jiménez Meza filed unconstitutionality action No. 09-008798-0007-CO, consolidated (acumulada) with the present one, in which he asserted standing by virtue of having invoked the unconstitutionality of the challenged norms in the proceeding processed under case file No. 08-000766-1027-CA, which he effectively demonstrated (copies at folios 292-293). In another vein, since the challenged norms are provisions of a general nature, it is admissible, in accordance with Article 73 of the Constitutional Jurisdiction Law, to question them through this route.\n\n**II.- JOINDERS (COADYUVANCIAS).** In accordance with Article 83 of the Constitutional Jurisdiction Law, within fifteen days following the first publication of the notice referred to in the second paragraph of Article 81 of this same law, *\"(...) those with a legitimate interest (interés legítimo) may appear in this [proceeding] to assist (coadyuvar) in the arguments that may justify its admissibility or inadmissibility, or to expand, as the case may be, the grounds for unconstitutionality in relation to the matter that concerns them.\"* In this case, the following three active joinders (coadyuvancias activas) were filed within the legal deadline and are, therefore, admissible: Fernando Pérez Morais (folios 167-172), Jorge Fisher Aragón, representing Maykel Segura López (folios 173-175), and Eduardo López Arroyo, representing Hugo Salas Brenes (folios 179-1783). Also filed, but untimely and therefore not admitted, are the active joinder filed by [Name 001] (folio 241) and the passive joinder (coadyuvancia pasiva) filed by Alvin Villavicencio Coronado (folio 242).\n\n**III.- SUBJECT MATTER (OBJETO) OF THE CONSOLIDATED UNCONSTITUTIONALITY ACTIONS.** Both unconstitutionality actions coincide in challenging section 3°, subsection a), of the Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo), Law No. 8508 of April 24, 2006, insofar as it provides that claims (pretensiones) related to administrative conduct in public employment relations matters will be heard by the labor jurisdiction (jurisdicción laboral). Additionally, the first action filed, No. 08-012174-0007-CO, attacks the jurisprudence handed down by the First Chamber of Cassation (Sala Primera de Casación), in light of Article 4°, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa) No. 3667 of March 12, 1966, insofar as it refers any controversy arising within a public or statutory employment relationship to the knowledge and resolution of the labor jurisdiction; therefore, the cited provision of the repealed Regulatory Law of the Contentious-Administrative Jurisdiction is also challenged.\n\n**IV.- CONSTITUTIONAL REGULATION OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION AND THE CONSTITUTIONAL ATTRIBUTION OF A COMPETENCE (COMPETENCIA).** The original constituent power (constituyente originario) and the amending power (poder reformador) undertook to define the subject-matter jurisdiction (competencia material) and, consequently, the extension and scope of two jurisdictions essential to the Social and Democratic State of Law (Estado Social y Democrático de Derecho). Indeed, sections 10 and 48 establish the subject-matter jurisdiction of the constitutional jurisdiction (jurisdicción constitucional) and, in section 49, that of the contentious-administrative jurisdiction. The foregoing makes evident, in the will of the original constituent power and the amending power, the transcendence of both the constitutionality control and the legality control of public powers in order to guarantee the effective enjoyment and exercise of the fundamental rights and human rights enshrined, respectively, in the constitutional text and the instruments of Public International Law. Undoubtedly, such constitutional precepts embody what doctrine has termed the regal clause of the Constitutional State of Law (Estado Constitucional de Derecho). Regarding, particularly, the contentious-administrative jurisdiction, Article 49 of the Constitution, after the partial amendment by virtue of Law No. 3124 of June 25, 1963, provides the following:\n\n*\"The contentious-administrative jurisdiction is established as an attribution of the Judicial Branch (Poder Judicial), with the object of guaranteeing the legality of the administrative function of the State, its institutions, and every other entity of public law.*\n\n*Deviation of power (desviación de poder) shall be a ground for challenging administrative acts.*\n\n*The law shall protect, at least, the subjective rights (derechos subjetivos) and legitimate interests (intereses legítimos) of the administered parties (administrados).\"*\n\nBased on the literal transcription of the constitutional precept, the following is worth highlighting:\n\n1°) The derived constituent power or amending power opted for a \"judicialist\" model of administrative justice; that is, entrusting a specialized jurisdictional order of the Judicial Branch with the competence and attribution to exercise oversight of the legality of the administrative function, meaning its substantial conformity or adjustment to the legality framework (bloque de legalidad). This system offers considerable guarantees and comparative advantages for the justiciable party (justiciable), such as specialization, which, accompanied by the judicial career (carrera judicial) established at the infra-constitutional level, represents a true guarantee of correctness and compliance with the constitutional imperative contained in section 41 of the Constitution of \"full justice.\"\n\n2°) The amending power defined, with clear clarity, the subject-matter jurisdiction of the contentious-administrative jurisdiction, indicating that its object is *\"to guarantee the legality of the administrative function.\"* It is worth noting that the constitutional norm does not distinguish, so that this specialized jurisdictional order is responsible for the oversight of any specific manifestation of the administrative function, without exceptions. The derived constituent power thus enshrined a plenary and universal administrative justice, avoiding any enclaves or areas of the administrative function exempt from legality control or oversight. The *\"administrative function\"* is an indeterminate legal concept, employed by the amending power from 1963 onwards, which encompasses or includes any specific or concrete manifestation thereof; that is, all administrative conduct—by action or omission (omisión)—(e.g., formal activity, material actions (actuaciones materiales), and formal and material omissions), as well as the complementary, more dynamic and flexible figure of the administrative legal relationship (relación jurídica-administrativa).\n\n3°) The derived constituent power or amending power established a constitutional reservation (reserva constitucional) of the subject-matter jurisdiction of the contentious-administrative jurisdiction by stipulating that its object is *\"to guarantee the legality of the administrative function,\"* for which reason the ordinary legislator, in the exercise of its freedom of configuration, cannot attribute that competence to another jurisdictional order that is not the contentious-administrative one, since, were it to do so, it would be emptying of content the institutional guarantee and the fundamental right enshrined in Article 49 of the Constitution. On this particular point, and after better consideration, this Constitutional Court varies or reverses the thesis set forth in Opinions (Votos) Nos. 3095-94 of 3:57 p.m. on August 3, 1994, 7540-94 of 5:42 p.m. on December 21, 1994, 5686-95 of 3:39 p.m. on October 18, 1995, and 14999-2007 of 3:06 p.m. on October 17, 2007. The foregoing means that when a justiciable party brings a claim (pretensión) to question the invalidity or substantial non-conformity with the administrative legal system of an administrative conduct or any singular manifestation of the administrative function (formal or material omission, formal activity, material action, or administrative legal relationship), the contentious-administrative jurisdiction must necessarily hear and resolve it. Obviously, if the claim, due to its material content, even if related to some administrative conduct or specific manifestation of the administrative function—insofar as a public entity or body intervenes—is governed by the labor, family, or agrarian legal regime, it must be heard and resolved by those jurisdictional bodies, since what is being questioned is not, properly, the substantial conformity or non-conformity of the administrative function or conduct with the administrative legal system, which is what Article 49 of the Constitution reserves to the contentious-administrative jurisdiction. This Constitutional Court considers that the determining criteria for delimiting the scope of competence of the contentious-administrative jurisdiction from other specialized jurisdictional orders—which, henceforth, must be considered by the ordinary jurisdiction (jurisdicción ordinaria)—will therefore be the following: **1°)** The **material or substantial content of the claim** and **2°)** the **applicable legal regime**; so that if the substantial conformity or non-conformity of a specific manifestation of the administrative function with the legality framework is being discussed, the conflict of interest will necessarily be heard by the contentious-administrative jurisdiction.\n\n4°) The legality control enshrined in section 49 of the Constitution is projected, as indicated, to all the administrative function carried out by any public entity or body; that is, to all public administrations, without exception. For this reason, the first paragraph of the constitutional precept under examination concludes with a residual or general formula, indicating that it encompasses the function carried out both by the central administration—the State—and by *\"every other entity of public law.\"*\n\n5°) The derived constituent power opted for a mixed administrative justice, since the first paragraph, when defining the object of the contentious-administrative jurisdictional order—*\"to guarantee the legality of the administrative function\"*—must be complemented, inevitably, with the final paragraph *in fine*, by prescribing that the law shall provide protection, at a minimum, to subjective rights and legitimate interests—without distinguishing regarding the latter, making admissible the protection of both personal and collective interests, whether corporate or diffuse. Consequently, the contentious-administrative jurisdiction, according to the Law of the Constitution, was instituted both to ensure the legality of the administrative function and for the effective protection of the substantial legal positions (situaciones jurídicas sustanciales) of the administered parties against public powers. Thus, an objective and subjective role of the contentious-administrative jurisdiction is constitutionally combined.\n\n**V.- CERTAIN ADMINISTRATIVE CONDUCTS RELATED TO A PUBLIC EMPLOYMENT RELATIONSHIP AS A SPECIFIC MANIFESTATION OF THE ADMINISTRATIVE FUNCTION.** Article 49 of the Constitution establishes a plenary and universal contentious-administrative jurisdiction that allows the justiciable party to challenge or attack any conduct or manifestation of the administrative function before that jurisdictional order. Among the possible specific manifestations of the administrative function constitutionally challengeable before the contentious-administrative forum are, obviously, those conducts of public administrations within the framework or context of a public or statutory employment relationship, unquestionably governed by Administrative Law or of an administrative-legal nature, as emerges from sections 191 and 192 of the Constitution, 111 and 112 of the General Law of Public Administration (Ley General de la Administración Pública), and from the constitutional jurisprudence that informs them (Opinions of this Constitutional Court Nos. 1696-92, 4453-2000, 244-2001, and 14416-2006). Consequently, the ordinary legislator cannot radically exclude—totally and absolutely—from the knowledge and resolution of the contentious-administrative jurisdiction all administrative conduct in public employment relations matters, since it has no freedom of disposition over this aspect, as it is bound by the subject-matter jurisdiction defined and reserved in Article 49 of the Constitution. From the foregoing, it also cannot be concluded that every administrative conduct in public employment matters must be heard and resolved before the contentious-administrative jurisdiction, because there will be **claims and issues that, due to their material content and the applicable legal regime**, must inevitably be brought before the labor jurisdiction, by reason of its specific subject-matter jurisdiction.\n\n**VI.- UNCONSTITUTIONALITY OF ARTICLE 3°, SUBSECTION A), OF THE CONTENTIOUS-ADMINISTRATIVE PROCEDURAL CODE.** Section 3°, subsection a), of the Contentious-Administrative Procedural Code (Law No. 8508 of April 24, 2006), provides the following:\n\n*\"The Contentious-Administrative and Civil Treasury Jurisdiction (Jurisdicción Contencioso-Administrativa y Civil de Hacienda) shall not hear the following claims:*\n\n*a)   Those related to the conduct of the Public Administration in public employment relations matters, which shall be heard by the labor jurisdiction (...)\"*\n\nThe challenged provision radically and absolutely—without exception—excludes from the knowledge and resolution of the contentious-administrative jurisdiction all claims related to administrative conduct within the framework of a statutory relationship, thereby clearly violating the Law of the Constitution and, particularly, Article 49 of the Constitution, which exclusively reserved to that jurisdictional order, as its subject-matter jurisdiction, *\"to guarantee the legality of the administrative function.\"* The challenged legislative text does not allow, due to its closed literal tenor, an interpretation consistent with the Law of the Constitution and the necessary distinction between **claims that, due to their material content and the applicable legal regime**, must be heard and resolved either by the contentious-administrative jurisdiction or by the labor jurisdiction. As noted supra, when the justiciable party seeks to discuss the substantial non-conformity or invalidity of an administrative conduct or specific manifestation of the administrative function with the administrative legal system, the matter must be brought, due to the reservation and constitutional imperative of Article 49, before the contentious-administrative jurisdiction. In essence, the justiciable party has the constitutional guarantee of challenging any conduct that is a manifestation of the administrative function before the contentious-administrative jurisdiction, given that there are conducts produced within a public employment relationship that are specific expressions of the general concept of the *\"administrative function.\"* On the other hand, there will be **claims that, due to their substantial content and the applicable legal regime**, must be heard and resolved by the labor jurisdiction, considering its special competence and the need to apply, to the specific case, the particular dogmatic categories, institutions, institutes, principles, and hermeneutical tools of that legal discipline. Thus, by way of example and without claiming to be exhaustive, the labor jurisdiction must hear and resolve—even if the matter is related to the administrative conduct or function exercised by a public entity—issues that are typical or materially labor-related, such as the propriety or not of and the calculation for the payment of the Christmas bonus (aguinaldo), vacations, prior notice (preaviso), and severance pay (auxilio de cesantía), matters concerning the recognition of a retirement or pension or professional risks, controversies arising in the field of individual and collective Labor Law (e.g., economic-social conflicts), everything related to the exercise of the right to strike or work stoppage (paro), etc. In the same vein, it is necessary to recognize that in the case of employees responsible for tasks subject to common law of public enterprises or economic services developed by a public administration, or of mere laborers, workers, or employees who do not participate in the public management of the respective public entity; that is, those doctrine calls \"workers of the public administration,\" the controversies that arise must be heard and resolved by the labor jurisdiction, as they are not, in the strict sense, a public official, servant, or employee (Articles 111, paragraph 2°, and 112, paragraph 2°, of the General Law of Public Administration), given that any conduct emanating from the public entity, in such context, will not be subject to the administrative legal regime and cannot be considered, materially, as an administrative legal relationship. It is necessary to highlight that the constituent power opted for jurisdictional orders specialized by reason of subject matter—at least up to a certain instance—as a guarantee of correctness and a means for achieving the constitutional imperative of prompt and full justice. Although Article 41 of the Constitution enshrines the general right of access to jurisdiction, sections 10, 48, 49, 70, and 153 of the fundamental norm clearly opt for the establishment of specialized jurisdictions.\n\nThus, the party seeking justice has the right to choose before which jurisdictional order to bring an action, provided that the **material nature of the claim and the applicable legal regime** is congruent with the specialty—constitutional or legal—of the respective jurisdiction. This Constitutional Court does not overlook that in judicial practice, due to inadequate or defective legal representation or advice, parties may make mistakes when bringing a claim or combining them before a specific jurisdictional order; however, in such cases, the jurisdictional body must proceed, with due celerity and procedural economy, to sever the **claims that, by their substantial content and the applicable legal regime**, should not be heard in that venue, and to give swift course to those that are appropriate, unless another cause prevents it. In the same vein, when any conflict of competence arises, the jurisdictional bodies involved and the First Chamber of Cassation (Sala Primera de Casación), insofar as it acts as the Court of Conflicts between the contentious-administrative and labor jurisdictions, must be particularly diligent in processing and resolving it to avoid any undue delay or unjustified postponement that significantly affects the fundamental right to a swift justice (Article 41 of the Constitution) or the human right contained in the American Convention to a process within a reasonable time (Article 8.1).\n\n**VII.- UNCONSTITUTIONALITY OF THE CASE LAW OF THE FIRST CHAMBER OF CASSATION IN THE INTERPRETATION AND APPLICATION OF ARTICLE 4, SUBSECTION A), OF THE REGULATORY LAW OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION WHEN RESOLVING CONFLICTS OF COMPETENCE BETWEEN THE LABOR AND CONTENTIOUS-ADMINISTRATIVE JURISDICTIONS.** The plaintiffs also challenge as unconstitutional the case law of the First Chamber of Cassation, when acting as the Court of Conflicts of competence between the labor and contentious-administrative jurisdiction, and, particularly, when applying Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction (Ley Reguladora de la Jurisdicción Contencioso-Administrativa). The Contentious-Administrative Procedural Code (Código Procesal Contencioso-Administrativo), Law No. 8508 of April 24, 2006—which entered into force on January 1, 2008, according to the *vacatio legis* established in Article 222 of that normative body—repealed the Regulatory Law of the Contentious-Administrative Jurisdiction No. 3667 of March 12, 1966 (Article 198 of the Contentious-Administrative Procedural Code); however, within the interim law provisions of the Contentious-Administrative Procedural Code, Transitional Provisions III and IV stipulated the following:\n\n\"TRANSITORIO III.- The regime for challenging acts that became final in the administrative venue before this Code's entry into force shall be governed by the legislation in force at that time.\n\nTRANSITORIO IV.- Contentious-administrative proceedings and ordinary lawsuits attributed to the civil Treasury venue, filed prior to this Code's entry into force, regardless of their procedural stage, shall continue to be processed, in all their procedures and recourses, by the norms that governed on the date of filing. For this purpose, the Contentious-Administrative and Civil Treasury Court (Juzgado de lo Contencioso-Administrativo y Civil de Hacienda) shall continue processing such matters until their conclusion, and the Contentious-Administrative Tribunal (Tribunal Contencioso-Administrativo) shall maintain the sections deemed convenient to hear the challenge lawsuits provided for in Articles 82 to 90 of the Regulatory Law of the Contentious-Administrative Jurisdiction, and, on appeal, the resolutions issued by the Contentious-Administrative and Civil Treasury Court.\"\n\nRegardless of the interpretation that the ordinary jurisdiction may have given to these transitional norms, what is certain is that they clearly demonstrate the continued applicability (ultra-actividad) of the Regulatory Law of the Contentious-Administrative Jurisdiction and of those judicial interpretations in matters of competence conflicts that occurred at the proper procedural moment and that could even arise in the future regarding proceedings still pending under the repealed procedural legislation. Consequently, the challenged item is a jurisprudential guideline that continues to produce effects, without dismissing the possibility that it may do so in the future for matters initiated under the formally repealed legislation that have not yet definitively concluded. Since the early rulings Voto No. 185-95 of 4:35 p.m. on January 10, 1995, and Voto No. 4587-97 of 3:45 p.m. on August 5, 1997, this Constitutional Court has admitted, through normative integration, the action of unconstitutionality against reiterated criteria by jurisdictional bodies that have created a jurisprudential guideline, given that Article 3 of the Constitutional Jurisdiction Law (Ley de la Jurisdicción Constitucional) establishes that the Constitution shall be deemed infringed when this results from the interpretation made by public authorities of legal norms and the legal effects they produce, all in accordance with the supreme purpose of the constitutional jurisdiction to guarantee the supremacy of Constitutional Law (Article 10 of the Constitution and Article 1 of the Constitutional Jurisdiction Law). In this case, what is challenged is the jurisprudential line established by the First Chamber of Cassation, commencing with Resolution No. 607-C-01 of 10:09 a.m. on August 10, 2001, when resolving conflicts of competence between the labor and contentious-administrative jurisdictions and remitting the matter to the former, even when the claims are materially governed by Administrative Law (e.g., nullity of a dismissal act, reinstatement, and payment of damages), by considering, roughly speaking (grosso modo), that any controversy arising in public employment relations is \"of a purely labor nature.\" For this purpose, copies of the following resolutions from that judicial instance are provided: 770-C-2001 of 9:51 a.m. on October 3, 2001, 478-C-2005 of 9:40 a.m. on July 7, 2005, 742-C-2006 of 10:05 a.m. on October 5, 2006, and 769-C-2007 of 3:20 p.m. on October 31, 2007, by which the requirement to demonstrate the jurisprudential guideline is considered fulfilled. In light of the considerations set forth in the preceding recitals, it is evident that the jurisprudential line of the First Chamber of Cassation, which ordered, before the entry into force of the new Contentious-Administrative Procedural Code and in application of the Regulatory Law of the Contentious-Administrative Jurisdiction, the remittance to the labor venue of any proceeding in which a claim is brought within the framework of a statutory relationship, considering it a controversy \"of a purely labor nature,\" is, by all lights, unconstitutional as it violates Article 49 of the Constitution. Indeed, as was noted, there are **claims that, by their material or substantial character and the applicable legal regime**, although brought in the context of a public employment relationship, must be heard and resolved, by constitutional mandate (Article 49 of the Constitution), by the contentious-administrative jurisdiction; that is, all those in which a public official or employee questions the substantial conformity or validity of any specific manifestation of the administrative function or administrative conduct with the administrative legal order.\n\n**VIII.- ALLEGED UNCONSTITUTIONALITY OF ARTICLE 4, SUBSECTION A), OF THE REGULATORY LAW OF THE CONTENTIOUS-ADMINISTRATIVE JURISDICTION.** Article 4, subsection a), of the repealed Regulatory Law of the Contentious-Administrative Jurisdiction (No. 3667 of March 12, 1966), which continues to produce legal effects in proceedings filed before the entry into force of the Contentious-Administrative Procedural Code, provided as follows:\n\n<i>\"The following shall not correspond to the Contentious-Administrative Jurisdiction:\n\na) Matters of a criminal nature and those others that, although related to acts of the Public Administration, correspond to the labor jurisdiction (…)\"</i>\n\nThis Constitutional Court considers that this precept of the Regulatory Law of the Contentious-Administrative Jurisdiction is not, per se, unconstitutional, since, in a manner consistent with the competence constitutionally established and reserved for that jurisdictional order (\"to guarantee the legality of the administrative function\") in Article 49 of the Constitution, it admits the possibility that this specialized jurisdiction may hear and resolve certain controversies even in the context of a statutory or public employment relationship. So much so that the First Chamber of Cassation, before adopting the latest jurisprudential line now challenged, held, in order to resolve conflicts of competence between the labor and contentious-administrative venues, that the contentious-administrative judge could hear and resolve claims in which the validity of an administrative procedure or a formal administrative act was challenged and the restoration of the substantial legal situation (in natura through reinstatement or by equivalent means through the payment of damages or lost wages). Consequently, Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction had a more elastic content or a more open texture—in contrast with the rigidity and radical nature of Article 3, subsection a), of the Contentious-Administrative Procedural Code—that allowed interpretations consistent with Constitutional Law and, in particular, with the provisions of Article 49 of the Constitution. In summary, from the challenged legislative text, it is possible to distinguish, with crystal clarity, two types of **claims—according to their material or substantial content and the applicable legal regime—**, that is, those aimed at questioning the validity or substantial conformity of an administrative conduct with the administrative legal order, and those that, although related to the formal conduct of public administrations—given the eminently reviewing or objective character of the administrative justice model established in the 1966 Law—, by their materiality and the applicable legal regime, must be heard and resolved by the labor jurisdiction as they are governed by Labor Law—individual or collective. Given the binding nature of even the recital portion of constitutional judgments, the First Chamber of Cassation must, henceforth, if it must apply Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction, take note of the reasons set forth in this judgment to reverse the jurisprudential or interpretive line now declared unconstitutional, admitting the interpretation consistent with Article 49 of the Constitution of the challenged legal provision. For these reasons, this Chamber considers that the challenged norm is not, in itself, unconstitutional, so this aspect must be dismissed. What is unconstitutional, as noted in the preceding recital, is the interpretation that the First Chamber of Cassation has made of the norm since 2001.\n\n**IX.- COROLLARY.** By virtue of the reasons set forth, the accumulated actions of unconstitutionality must be partially granted, as indicated in the operative part.\n\n**POR TANTO:**\n\nThe accumulated actions are partially granted. Article 3, subsection a), of the Contentious-Administrative Procedural Code (Law No. 8508 of April 28, 2006) and the case law of the First Chamber of Cassation of the Supreme Court of Justice that, in application of Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction, remitted to the labor jurisdiction any controversy related to a public employment relationship, considering it \"purely labor,\" even when the party materially sought to challenge the substantial nonconformity with, or invalidity of, an administrative conduct or specific manifestation of the administrative function against the administrative legal order, arising in a statutory relationship, are declared unconstitutional. Regarding the challenge of Article 4, subsection a), of the Regulatory Law of the Contentious-Administrative Jurisdiction, the accumulated actions are dismissed. This declaration of unconstitutionality has declaratory and retroactive effects to the date on which the challenged norm and case law came into force, without prejudice to rights acquired in good faith, or legal relationships and situations consolidated by prescription, expiration, or judgment having the authority of material res judicata. Publish in full in the Boletín Judicial and summarize in the official gazette La Gaceta. Notify the Procuraduría General de la República, the plaintiffs, the coadjuvants, and the judicial authorities hearing the prior matter. Communicate to the presidency of the Asamblea Legislativa and of the First Chamber of Cassation of the Corte Suprema de Justicia.\n\n\n    Ana Virginia Calzada M.\n\nPresidenta\n\n    Luis Paulino Mora M.         Gilbert Armijo S.\n\n    Ernesto Jinesta L.           Fernando Cruz C.\n\n    Fernando Castillo V.         Aracelly Pacheco S.\n\n801/199/ibj.-"
}