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Aplicación De La Ley N.º 28440: Sistema Electoral Y Participación Ciudadana De Centros Poblados, Arequipa, 2016

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Aplicación De La Ley N.º 28440: Sistema Electoral Y Participación Ciudadana De Centros Poblados, Arequipa, 2016 UNIVERSIDAD CATÓLICA DE SANTA MARÍA ESCUELA DE POSTGRADO MAESTRÍA EN DERECHO CONSTITUCIONAL APLICACIÓN DE LA LEY N.º 28440: SISTEMA ELECTORAL Y PARTICIPACIÓN CIUDADANA DE CENTROS POBLADOS, AREQUIPA, 2016 Tesis presentada por la Bachiller MARÍA DEL CARMEN PAZ BARREDA Para optar por el Grado Académico de MAESTRO EN DERECHO CONSTITUCIONAL Asesor DR. EDUARDO JESÚS MEZA FLORES Arequipa-Perú 2017 A mi hijo, Imanol y mi familia, por su apoyo y comprensión. 2 La democracia lleva al más bello nombre que existe “igualdad” Herodoto Para nosotros, la democracia es una cuestión de dignidad humana. Y la dignidad humana es la libertad política. Sven Olaf Palme 3 ÍNDICE GENERAL RESUMEN 9 ABSTRACT 10 INTRODUCCIÓN 11 CAPÍTULO I: SISTEMA ELECTORAL Y DERECHO DE PARTICIPACIÓN 13 CIUDADANA 1. SISTEMA ELECTORAL 14 A. ANTECEDENTES 14 B. CONCEPTO 15 C. SISTEMA ELECTORAL DE LAS ELECCIONES MUNICIPALES 22 D. PRINCIPIOS 23 E. ORGANISMOS ELECTORALES 26 F. CRÍTICAS AL SISTEMA ELECTORAL ACTUAL 36 G. PROCESO ELECTORAL 38 H. PARTICIPACIÓN DE LOS ORGANISMOS ELECTORALES 48 I. GARANTÍAS ELECTORALES 49 J. LEGISLACIÓN COMPARADA 51 2. DERECHO DE PARTICIPACIÓN CIUDADANA 53 A. DERECHO FUNDAMENTAL A LA PARTICIPACIÓN POLÍTICA 58 B. DERECHO AL VOTO 62 C. DERECHO A ELEGIR O SER ELEGIDO 65 DERECHO A PERTENECER O REPRESENTAR A UNA ORGANIZACIÓN D. 66 POLÍTICA CAPÍTULO II: LEY N.º 28440, LEY DE ELECCIÓN DE AUTORIDADES MUNICIPALES DE CENTROS POBLADOS 69 1. LAS MUNICIPALIDADES 70 A. AUTONOMÍA MUNICIPAL 71 2. IMPORTANCIA DE LOS CENTROS POBLADOS EN EL PERÚ 75 3. ANÁLISIS DE LA LEY N.º 28440 80 A. ACTORES 81 B. DISEÑO DEL PROCESO 85 C. CONDICIONES PARA EL DESARROLLO DE LOS PROCESOS ELECTORALES EN LOS CENTROS POBLADOS 91 4. JURISPRUDENCIA DEL JURADO NACIONAL DE ELECCIONES 92 CAPÍTULO III: RESULTADOS 95 I. ANÁLISIS DEL PROCESO DE ELECCIÓN DEL CENTRO POBLADO DE SAN ISIDRO, 2016 96 1. MUNICIPALIDAD PROVINCIAL DE AREQUIPA 98 2. ANÁLISIS DEL PROCESO DE ELECCIONES 102 A. ETAPA INICIAL 103 B. ETAPA INTERMEDIA 104 C. ETAPA FINAL 106 D. RESUMEN 108 4 3. SISTEMATIZACIÓN DEL PROCESO DE ELECCIONES 109 4. PROBLEMÁTICA DEL PROCESO DE ELECCIONES EN CENTROS 114 POBLADOS II. ANÁLISIS DE LOS PROYECTOS DE LEY REFERIDOS A LA LEY N.º 28440 118 1. PROYECTO DE LEY N.º 1002/2011-CR 118 2. PROYECTO DE LEY N.º 1904/2012-CR 120 3. PROYECTO DE LEY N.º 3659/2009-CR 123 4. DICTAMEN DE LOS PROYECTOS DE LEY N.º 1002/2011-CR, 1904/2012-CR Y 2177/2012-CR, QUE PROPONEN MODIFICAR E INCORPORAR DIVERSOS ARTÍCULOS DE LA LEY DE ELECCIONES DE AUTORIDADES 124 DE MUNICIPALIDADES DE CENTROS POBLADOS III. ENCUESTAS 128 1. PRESENTACIÓN 128 2. ANÁLISIS DE LOS RESULTADOS 130 IV. ENTREVISTA A ESPECIALISTA EN MATERIA ELECTORAL 143 CONCLUSIONES 146 SUGERENCIAS 148 PROPUESTA PARA EL PROYECTO DE LEY 149 REFERENCIAS 165 HEMEROGRAFÍA 166 SENTENCIAS 171 ANEXOS 172 1. PROYECTO DE TESIS 2. LEY N.º 28440: LEY DE ELECCIÓN DE AUTORIDADES MUNICIPALES DE CENTROS POBLADOS 3. PROYECTOS DE LEY ANALIZADOS 4. NOTICIAS RELACIONADAS A ELECCIONES EN CENTROS POBLADOS ANÁLISIS DEL PROYECTO DE LEY N.º 1313-2016-CR, PROYECTO DE LEY 5. DEL CÓDIGO ELECTORAL, ELABORADO POR EL JURADO NACIONAL DE ELECCIONES 5 ÍNDICE DE TABLAS TABLA N.º 1 Requisitos para ser candidato a cargos 40 regionales y municipales TABLA N.º 2 Tabla comparativa de Municipalidades 78 Distritales y de Centros Poblados TABLA N.º 3 Tabla comparativa sobre los Reglamentos de 100 Elecciones de Autoridades Municipales de Centros Poblados de la Municipalidad Provincial de Arequipa TABLA N.º 4 Conformación por género en el padrón 104 TABLA N.º 5 Participación por género de candidatos 105 TABLA N.º 6 Conformación de mesas de sufragio y cantidad 106 de electores TABLA N.º 7 Nivel de ausentismo en las elecciones 106 TABLA N.º 8 Porcentajes de votación 107 TABLA N.º 9 Resultados de la Sistematización de la 110 actuación de la Municipalidad Provincial en el proceso de elecciones de San Isidro Cumplimiento e incumplimiento de la TABLA N.º 10 Municipalidad Provincial de Arequipa del 113 proceso de elecciones de autoridades municipales del centro poblado San Isidro, 2016 TABLA N.º 11 Casos reportados a la Secretaría General del 115 Jurado Nacional de Elecciones sobre elecciones en centros poblados (2011) TABLA N.º 12 Tabla comparativo de proyectos de ley 127 relacionados a la Ley N.º 28440 TABLA N.º 13 Considera que el JNE, ONPE y Reniec deben 130 participar en el proceso de elecciones TABLA N.º 14 Considera que una municipalidad provincial 131 cuenta con las herramientas para brindar garantías electorales en un proceso de elección TABLA N.º 15 El comité electoral requiere supervisión durante 132 la realización del proceso electoral TABLA N.º 16 Considera usted que el padrón electoral 133 contiene errores TABLA N.º 17 Se capacita a los miembros del comité electoral 134 TABLA N.º 18 Cómo percibe la labor de la municipalidad 135 provincial con respecto a la realización de la convocatoria de elecciones TABLA N.º 19 Cómo percibe la labor de la municipalidad 136 provincial con respecto a la realización de la inscripción de las listas de candidatos TABLA N.º 20 Cómo percibe la labor de la municipalidad 137 provincial con respecto a la realización de elaboración del padrón electoral TABLA N.º 21 Cómo percibe la labor de la municipalidad 138 provincial con respecto a la fiscalización de los resultados de votación TABLA N.º 22 Conoce el Reglamento de Elecciones de 139 autoridades municipales de centros poblados 6 TABLA N.º 23 Periodo que se lleva a cabo un proceso de 140 elección de autoridades municipales TABLA N.º 24 Participó en la elección del Comité Electoral 141 TABLA N.º 25 Usted está de acuerdo en la forma de elección 142 del Comité Electoral 7 ÍNDICE DE GRÁFICAS GRÁFICA N.º 1 Etapas del proceso electoral 39 GRÁFICA N.º 2 Cronograma Electoral 47 Proceso de elecciones de autoridades GRÁFICA N.º 3 municipales de acuerdo a la Ley N.º 28440 90 GRÁFICA N.º 4 Porcentaje de cumplimiento del proceso de 114 elecciones municipales de la MPA GRÁFICA N.º 5 130 GRÁFICA N.º 6 131 GRÁFICA N.º 7 132 GRÁFICA N.º 8 133 GRÁFICA N.º 9 134 GRÁFICA N.º 10 . 135 GRÁFICA N.º 11 136 GRÁFICA N.º 12 137 GRÁFICA N.º 13 138 GRÁFICA N.º 14 . 139 GRÁFICA N.º 15 140 GRÁFICA N.º 16 141 GRÁFICA N.º 17 142 GRÁFICA N.º 18 Popuesta de Proyecto de Ley 164 8 RESUMEN El presente estudio tuvo como objetivo analizar cómo funciona el proceso de elección de autoridades municipales de centros poblados a cargo de los gobiernos locales, regulado por la Ley N.º 28440, Ley de Elecciones de Autoridades Municipales de Centros Poblados. Para ello fue necesario analizar el rol de los organismos electorales, en el marco de un proceso de elecciones dirigido por el Sistema Electoral. Para realizar la presente investigación se tomó como unidad de estudio a la población del centro poblado de San Isidro, distrito de La Joya, provincia y departamento de Arequipa, por ser el mas representativo de la provincia (mayor población y extensión territorial). El tipo de investigación fue documental a nivel descriptiva y explicativa, habiéndose aplicado un cuestionario a la población de San Isidro y una entrevista al ex Secretario General del Jurado Nacional de Elecciones, Dr. Roque Augusto Bravo Basaldúa, especialista en materia electoral. Asimismo, también se tuvo acceso a los resultados del proceso de elecciones de autoridades municipales de San Isidro, del 2016. Los resultados mas saltantes mostraron la siguiente situación: En el centro poblado de San Isidro el 78% de la población considera que los organismos electorales deberían de participar en sus procesos de elección de autoridades municipales. Ante la interrogante, de si la municipalidad provincial cuenta con las herramientas para brindar las garantías electorales al proceso, se tiene que el 61% respondió negativamente. Respecto, a si el Comité Electoral requiere de supervisión durante la realización del proceso electoral, el 86% de la población respondió que esta es necesaria. En cuanto, al padrón electoral, el 43% de la población considera que este siempre tiene errores y el 42% que a veces. En cuanto a la actuación de la Municipalidad Provincial de Arequipa, se aprecia que esta cumplió solo con el 16% de las reglas establecidas para llevar a cabo el proceso electoral. Sobre la entrevista, se observa que está también tuvo como resultado que es necesario integrar al Sistema Electoral en las elecciones de los centros poblados por ser una labor compleja y especializada. Así, los resultados permitieron comprobar la hipótesis de la investigación que afirma que la Ley N.º 28440, contiene deficiencias que inciden negativamente en la vigencia del derecho de participación ciudadana, por lo que es necesaria la integración del Sistema Electoral en cada una de las etapas del proceso de elección de autoridades municipales de centros poblados. Este contexto brindó un marco adecuado para proponer un modelo de elecciones de autoridades municipales de centros poblados uniforme a nivel nacional, que a su vez respete los lineamientos electorales vigentes, en todo tipo de unidad territorial. Palabras clave: Sistema electoral, derecho de participación ciudadana, centros poblados, proceso electoral. 9 ABSTRACT - SUMMARY The present research paper had as an objective to analyze how the election process of municipal authorities of rural communities in charge of the local governments works. This process is regulated by the Law Nº 28440, Law of Elections of Municipal Authorities of Rural Communities. In order to do so, it was necessary to analyze the role of electoral bodies, within the framework of an election process led by the Electoral System.
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