Nepieņemtā Islandes konstitūcija 2

Ja rūpīgi pārdomā konstitūcijas izveides procesu un savlaicīgi nodrošina tam pietiekamu politisko atbalstu, arī rezultāts var būt iedvesmojošāks par to, kas (ne)izdevās Islandē.

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Vai atceraties pirms dažiem gadiem sociālajos tīklos tik ļoti apjūsmoto stāstu par Islandes jauno konstitūciju? Stāsta kodols — pirmoreiz pasaules vēsturē kāda sabiedrība nolēma, ka savas konstitūcijas rakstīšanu neuzticēs ekspertiem un paveiks to saviem spēkiem, izmantojot tīmekļa konsultāciju iespējas un klātienes ideju talkas (crowdsourcing).

Tiesa, reti kurš zina, ka konstitūcijas izstrādes process nebūt nebija tik gluds, kā izskatījās, un ka Islandē līdz pat šai dienai ir spēkā vecā, 1944.gadā pieņemtā, konstitūcija.


Meklējot sīkāku informāciju par konstitūcijas tapšanu, atklājas, ka ne viss šajā attālajā, taču pasaulē plaši pazīstamajā valstī ir rožaini. Islandes atpazīstamība, sevišķi mūzikā (tādi pasaulslaveni izpildītāji kā Björk, Sigur Ros, Mum, Of Monsters and Men), ir neproporcionāla tās iedzīvotāju skaitam — 330 000 —, kas ir mazāk par pusi Rīgas.

Islande ir izteikti labklājīga valsts ar augstu tautas attīstības indeksu. Taču tā nav bijusi turīga vienmēr. Patiesībā strauja Islandes ekonomikas izaugsme ir tikai 21.gadsimta sākuma fenomens, ko nodrošināja lēmums privatizēt Islandes bankas un par valsts ekonomikas pamatu likt starptautiskos finanšu pakalpojumus. Bankas kļuva teju vai par nacionālo lepnumu.

Islandes ekonomikas veiksmes stāsts sabruka 2008.gadā, kad, sākoties pasaules ekonomikas krīzei, atklājās, ka valsts bankas bijušas pārdrošas un nu ir maksātnespējīgas. Bija arī pamatīgi jādevalvē Islandes valūta. Baidoties no tā, ka nespēs atmaksāt parādus — gan personiskos, gan valsts —, vairāki tūkstoši Islandes iedzīvotāju, skaļi dārdinot katlus un pannas, izgāja ielās, lai protestētu pret valdības politiku un pieprasītu jaunas vēlēšanas (tā sauktā “Trauku un pannu revolūcija”). Valdība atkāpās, tika organizētas jaunas vēlēšanas, kurās ievēlētās partijas apņēmās izstrādāt jaunu konstitūciju.

Islandes iepriekšējā konstitūcija steigā pieņemta 1944.gadā, un tās pamatā bija minimāli pārveidots 19.gadsimta konstitucionālais teksts.

Lai gan 1944.gada konstitūciju pieņēma kā pagaidu risinājumu ar nolūku vēlāk izstrādāt labāku variantu, vairākas desmitgades Islandes politiskajai elitei trūka vēlmes ķerties pie darba.

Politiskā griba strādāt pie jaunas konstitūcijas parādījās, tikai saskaroties ar 2008.–2011.gada krīzi, un arī tad tā nebija īpaši spēcīga.

Kā tikt pie tautas izstrādātas konstitūcijas?

Jau jaunās konstitūcijas izveides sākumposmā bija skaidrs, ka process būs neparasts. 2008.gadā Islandes politiskā elite bija diskreditēta, tāpēc bija nepieciešama parastā konstitūcijas izstrādes modeļa — ekspertu/deputātu komisijas — alternatīva. To atrada pēdējās desmitgadēs tik modīgajās deliberatīvās demokrātijas idejās, kas svarīgu lēmumu pieņemšanā tiecas pēc iespējas jēgpilnā procesā iesaistīt ne tikai tautas priekšstāvjus, bet arī plašāku sabiedrību.

Jau 2009.gadā Islandē norisēja grandioza ideju talka, kurā apspriest topošās konstitūcijas pamatprincipus bija aicināti 1200 pēc loterijas principa atlasīti Islandes iedzīvotāji, kā arī 300 dažādu organizāciju un institūciju pārstāvji.

Jaunā Islandes valdība 2010.gadā organizēja vēl vienu ideju talku. Tajā piedalījās 950 islandieši, kuri atbilstīgi demogrāfiskiem kritērijiem veidoja Islandes sabiedrības mikromodeli.

Viņi vienojās par vairākām idejām, kas noteikti būtu iekļaujamas jaunajā konstitūcijā, piemēram, vēlēšanu sistēmas reformu un Islandes dabas resursu pasludināšanu par sabiedrības īpašumu.

Lai šīs islandiešu idejas pārvērstu konstitūcijas melnrakstā, tika izveidota Konstitucionālā padome. Tās 25 locekļus, daždažādu profesiju un Islandes reģionu pārstāvjus, ievēlēja vispārējās vēlēšanās, kuru rezultātus gan anulēja Islandes Konstitucionālā tiesa, pamatojoties uz to, ka vēlēšanās nebija nodrošināts pilnīgs balsošanas aizklātums. Tomēr vēlāk Islandes valdība ar savu lēmumu apstiprināja šos 25 pārstāvjus amatā.

Konstitucionālā padome pie Islandes konstitūcijas melnraksta strādāja aptuveni četrus mēnešus, visus melnrakstus ievietojot internetā un ļaujot tos apspriest. Pārējie Islandes iedzīvotāji varēja sniegt komentārus un priekšlikumus sociālajos tīklos. Konstitucionālās padomes locekļi tos apsvēra un iesaistījās diskusijās, piemēram, Facebook lietotāji ierosināja konstitucionāli nostiprināt tiesības uz interneta brīvu pieejamību visiem Islandes iedzīvotājiem, un Konstitucionālā padome šo priekšlikumu iekļāva konstitūcijas melnrakstā.

Citi svarīgākie jauninājumi konstitūcijas melnrakstā bija vēlēšanu sistēmas maiņa, amatā atrašanās termiņi augsta līmeņa amatpersonām un likumdošanas iniciatīvas tiesību piešķiršana Islandes pilsoņiem.


Konstitucionālā padome melnrakstu atbalstīja vienbalsīgi. Pēc šā lēmuma 2012.gadā sekoja Islandes pilsoņu referendums gan par atbalstu pašai konstitūcijai, gan pieciem ar to saistītiem jautājumiem. Referendumā piedalījās 49% Islandes iedzīvotāju, un nobalsojušo vairākums (67%) jauno konstitūciju atbalstīja. Tā kā referendums bija tikai konsultatīvs, nākamajam solim vajadzēja būt konstitūcijas apstiprināšanai parlamentā.

Kā “norakt” tautas atbalstītu konstitūciju?

Islandes parlaments līdz pat šai dienai jauno konstitūciju nav apstiprinājis. Islande ir viena no retajām valstīm, kur konstitūcijas grozīšanai vajadzīgs divu secīgu parlamentu atbalsts — lai jaunā konstitūcija stātos spēkā, nepietiek ar viena parlamenta balsojumu un par tiem pašiem konstitūcijas grozījumiem pēc nākamajām vēlēšanām jānobalso arī jaunajam parlamenta sastāvam.

Iepriekšējais Islandes parlaments jaunās konstitūcijas apstiprināšanu apzināti novilcināja līdz pat brīdim, kad 2013.gadā beidzās tā pilnvaru termiņš un notika jaunas vēlēšanas. Izrādījās, ka vairākām partijām pret konstitūciju bija iebildumi.

Publiski gan savu skepsi bija paudusi tikai konservatīvā Neatkarības partija, kas jau no sākuma neatbalstīja izvēlēto jaunas konstitūcijas izveides modeli. Kad konstitūcijas melnraksts jau bija gatavs, Islandē sāka skanēt arī citas kritiskas balsis.

Pieņemot jauno konstitūciju un tādējādi pasludinot Islandes dabas resursus par sabiedrisko īpašumu, tiktu negatīvi ietekmētas zivsaimniecības nozares intereses. Konservatīvie politiskie spēki šīs intereses tradicionāli ir atbalstījuši.

Sākotnēji arī Islandes ietekmīgākie plašsaziņas līdzekļi novatorisko konstitūcijas veidošanas procesu lielā mērā ignorēja. Tikai tad, kad konstitūcijas melnraksts jau bija uzrakstīts, tika publicētas lielākoties kritiskas speciālistu atsauksmes.

Akadēmiķi un citi konstitucionālie eksperti jutās nepietiekami iesaistīti konstitūcijas tapšanas procesā.

2013.gada vēlēšanu rezultāti liecināja, ka ekonomikas un personīgo parādu problēmu risināšana islandiešus interesē vairāk par jauno konstitūciju — valsts parlamentā jaunās konstitūcijas aizstāvjiem trūka vairākuma arī pēc vēlēšanām. Iespējams, daļai islandiešu jautājums par jaunu konstitūciju nebija principiāls un viņu dusmas uz Islandes eliti remdēja daudzās krimināllietas pret Islandes biznesa līderiem un amatpersonām.

Iedvesma un mācības no skumju stāsta

Islandes jaunās konstitūcijas tapšanas process bija grandiozs eksperiments, kurā darba sākumā nevienam nebija skaidrības par visu jaunās konstitūcijas ceļu no sākuma līdz beigām. Ļaujoties tābrīža iedvesmai, darbu organizēja tā, lai iespējami ātrāk tiktu pie konstitūcijas melnraksta, tāpēc dažkārt rezultāts bija sasteigti risinājumi.

Konstitūcijas pieņemšanas procesā bija arī trūkstošie posmi, kas mulsināja gan Islandes sabiedrību, gan deputātus, piemēram, nebija zināms, vai parlaments drīkstēs vai nedrīkstēs labot Konstitucionālās padomes izstrādāto melnrakstu.

Darbs noritēja arī tautas/elites polarizācijas apstākļos, tāpēc partijas konstitūcijas rakstīšanā tika iesaistītas minimāli.

No šīm kļūdām 2013.gadā mācījās Igaunijas aktīvisti, kas, reaģējot uz uzticēšanās krīzi Igaunijas partijām, sāka Tautas asamblejas (Rahvakogu) procesu. Tā ambīcijas gan nebija tik vērienīgas kā Islandē — igauņi vēlējās nevis iegūt jaunu valsts konstitūciju, bet gan panākt pārmaiņas, kas uzlabotu politisko vidi. Taču vairākas metodes tika aizgūtas no islandiešu pieredzes, piemēram, tautas ideju vākšana un apspriešana gan tīmekļa vidē, gan klātienē, piedaloties pēc nejaušības principa atlasītam Igaunijas sabiedrības mikromodelim. Atšķirībā no islandiešiem igauņi bija rūpīgāk pārdomājuši visus procesa posmus, kā arī iesaistīja tā pārraudzībā visus Igaunijas galvenos politiskos spēkus. Par Tautas asamblejas procesa patronu kļuva Igaunijas prezidents.

Iedzīvotāju priekšlikumus izsijāja un pilnveidoja Igaunijas labākie eksperti, tā nodrošinoties ne tikai ar politisko, bet arī ekspertu atbalstu.

Iespējams, tāpēc vairāki priekšlikumi vēlāk tika atbalstīti parlamentā un pārtapa par likumu grozījumiem.

Konstitūcijas izstrāde var arī nebūt elitārs un slēgts process. Tā ir galvenā ziņa, ko no grandiozā Islandes eksperimenta vērts mācīties citām sabiedrībām. Ja rūpīgi pārdomā konstitūcijas izveides procesu un savlaicīgi nodrošina tam pietiekamu politisko atbalstu, arī rezultāts var būt iedvesmojošāks par to, kas (ne)izdevās Islandē. Tomēr arī Islandē aktīvisti joprojām nav atmetuši cerības — agri vai vēlu būs nākamās vēlēšanās, un, kas zina, varbūt, mainoties politiskajai situācijai, atkal dzirdēsim par Islandes tautas izstrādātu konstitūciju.


Raksts publicēts žurnāla "Laiks Pasaulei" 2015.gada decembra numurā.

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