Martes, 25 Octubre 2016

Tres aspectos fundamentales de la discusión sobre la Fiscalía General de México*

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Ximena Suárez-Enríquez

En México ha iniciado la discusión sobre la nueva Fiscalía General de la República (FGR) que eventualmente asumirá las funciones de la Procuraduría General de la República (PGR) de investigar y perseguir delitos federales en México. Organizaciones, académicos, empresarios, artistas y otros miembros de la sociedad civil han lanzado la campaña “Por una Fiscalía General de la República que Sirva”, exigiendo un diálogo público sobre el tema.

La Constitución mexicana se reformó en el 2014 para crear la Fiscalía debido a la falta de independencia y resultados de la PGR, y para asegurar que el nuevo sistema de justicia penal sea una realidad en el país. El Congreso mexicano aún debe llevar a cabo algunos actos legislativos para que la Fiscalía exista formalmente.

Ante todo, el Congreso debe tomar una decisión fundamental: crear una Fiscalía nueva, “desde cero”, incluyendo la designación de un Fiscal autónomo con un perfil idóneo y un equipo capaz de investigar delitos en forma seria y honesta, o transferir “en automático” al Procurador General de la República y a todo el personal de la PGR a la nueva Fiscalía, y con ello arrastrar a la nueva institución los vicios y prácticas que han llevado al colapso del sistema de justicia penal en México.

Las decisiones del Congreso y del Presidente sobre la Fiscalía afectarán a millones de víctimas de delitos en México. También tendrán consecuencias en la investigación de casos de desaparición, tortura, delitos contra migrantes, delincuencia organizada, así como en la confianza de los ciudadanos para denunciar delitos y en los resultados de las investigaciones penales.

Por ello, WOLA urge a las autoridades mexicanas a iniciar un diálogo serio y comprometido con la sociedad civil sobre la Fiscalía que México necesita, una Fiscalía que sirva para reducir los niveles de violencia y criminalidad en México y que garantice justicia para las víctimas de delitos.

Estos son los tres aspectos fundamentales a tener en cuenta sobre la Fiscalía General de la República de México:

1. ¿Por qué se creó la Fiscalía General de la República?

La Fiscalía General de la República de México se creó principalmente por los motivos siguientes:

• Falta de autonomía e independencia para investigar delitos: En México, la Procuraduría General de la República, a cargo de la investigación de delitos, forma parte del poder ejecutivo. En la práctica, la influencia política sobre el Procurador General es significativa, permite que la investigación y persecución de delitos en México sea manipulada políticamente y que las investigaciones no privilegien la reducción de la criminalidad o la justicia.

A partir de la reforma, la Fiscalía General será un órgano autónomo, es decir, ya no formará parte del poder ejecutivo ni de cualquier otra oficina gubernamental. El Fiscal General contará con autonomía e independencia para investigar delitos federales en México. El Fiscal General ya no estará subordinado al Presidente de la República y el Senado tendrá un papel predominante en la designación y remoción del Fiscal General y de otros funcionarios de alto nivel de la Fiscalía, incluyendo al recién establecido Fiscal para combatir la corrupción.

• Falta de resultados y poca rendición de cuentas en la PGR: En otras publicaciones, WOLA ha identificado las fallas de la PGR durante la investigación de delitos, incluyendo el rezago de casos, la sobrecarga de trabajo y la falta de investigaciones científicas y profesionales.

Diversos informes tanto de la Comisión Interamericana de Derechos Humanos como el Relator Especial sobre la Tortura y otras instancias de la ONU han documentado la forma en que funcionarios ministeriales e investigadores policiales en México incurren en violaciones a derechos humanos durante investigaciones penales, especialmente la tortura de presuntos inculpados para lograr auto incriminaciones. A nivel nacional, la Comisión Nacional de los Derechos Humanos de México ha emitido al menos 222 recomendaciones a la PGR por violar derechos humanos durante la investigación de delitos.

Hay poca transparencia y rendición de cuentas sobre los resultados de las investigaciones de la PGR. En diversas solicitudes de acceso a la información formuladas por WOLA, la PGR ha reconocido que no cuenta con un registro de cuántos de sus casos terminan en sentencias condenatorias o absolutorias.

Al interior de la PGR también hay poca rendición de cuentas. Por ejemplo, los funcionarios de la Procuraduría General de la República que han sido señalados de participar en actos de obstrucción a la justicia en casos de alto perfil como la desaparición forzada de los 43 estudiantes de Ayotzinapa no han sido debidamente investigados ni sancionados.

• Implementación del nuevo sistema de justicia penal: Bajo el nuevo sistema de justicia penal el Fiscal General puede tomar decisiones muy importantes sobre política criminal en el país, por ejemplo, abstenerse de investigar un caso o archivarlo temporalmente. También puede acabar con malas prácticas como la investigación de un mismo caso por diferentes oficinas dentro la misma institución (fragmentación de investigaciones) y el rezago de casos.

El nuevo sistema de justicia penal exige un Fiscal independiente, capaz de ejercer en forma responsable su poder, de resistir la presión de actores políticos, de generar confianza en la ciudadanía, y de guiarse por criterios de verdad y legalidad.

2. ¿Cómo se creó la Fiscalía General de México?

El 10 de febrero de 2014, el congreso mexicano reformó la Constitución Política de los Estados Unidos Mexicanos para crear la Fiscalía General de la República como un órgano autónomo a cargo de investigar y perseguir delitos federales en México. El Fiscal General de la República durará en su cargo nueve años.

Para que la Fiscalía exista oficialmente, el Congreso debe emitir una declaración de su autonomía y también debe emitir la ley orgánica de la Fiscalía. Hasta que ello ocurra, la PGR continuará a cargo de la investigación de delitos federales en México.

Actualmente existen varias iniciativas de ley de la Fiscalía en el Congreso pero ninguna ha sido aprobada.

3. ¿Qué tiene que pasar para que la nueva Fiscalía General de México cumpla sus objetivos?

Para que la nueva Fiscalía General de México cumpla con sus objetivos, al menos debe pasar lo siguiente:

• Los legisladores mexicanos deben revisar y modificar la reforma constitucional del 2014 que creó la Fiscalía. Se debe garantizar que el titular, integrantes y estructura de la FGR permitan la investigación seria y creíble de delitos en México. Los legisladores deben involucrar a la sociedad civil en estas discusiones.

• El Presidente de México y el Senado deben designar a un Fiscal autónomo al frente de la Fiscalía, con un perfil idóneo para ocupar el cargo. Se debe modificar el artículo décimo sexto transitorio de la reforma constitucional que creó la FGR para evitar que el último procurador designado por el Presidente Peña Nieto se convierta, en automático, en el primer Fiscal General de México. Ello permitiría la manipulación política del primer Fiscal General del país e impediría que fuera auténticamente autónomo.

• Los actuales funcionarios de la PGR no deben ser transferidos automáticamente a la Fiscalía. Se debe reformar el artículo décimo noveno transitorio de la reforma constitucional que creó la FGR para que todos los funcionarios que ingresen a la institución aprueben un concurso de oposición y méritos. Los funcionarios de la FGR deben seleccionarse en función de sus capacidades profesionales y debe excluirse a cualquier persona que pudiera haber participado en violaciones a derechos humanos, actos de corrupción, u obstrucción a la justicia.

• Debe planearse la transferencia de casos a la Fiscalía. El envío de casos a la Fiscalía debe ser gradual, eficiente y ordenado. En el proceso de transición se deben evitar rezagos y la repetición de malas prácticas en la investigación de delitos.

*Publicado en wola.org [octubre 25, 2016] 

Consulta también:

Modificado por última vez en Miércoles, 30 Agosto 2017 12:27

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