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Pracovní Osnova Vysoká škola CEVRO Institut DIPLOMOVÁ PRÁCE Aleš Menhart Praha 2015 2 Vysoká škola CEVRO Institut Katedra veřejného práva a veřejné správy VÝVOJ ÚSTAVNÍHO SYSTÉMU PO ROCE 1989 Aleš Menhart Studijní program: Právní specializace Studijní obor: Veřejná správa Vedoucí práce: PhDr. Pavel Žáček, Ph.D. Diplomová práce Praha 2015 3 4 Prohlašuji, že jsem diplomovou práci zpracoval samostatně, uvedl v ní všechny použité prameny a zdroje a v textu řádně vyznačil jejich použití. V Praze dne 15. 4. 2015 Aleš Menhart 5 6 Poděkování Děkuji vedoucímu práce panu Dr. Pavlu Žáčkovi za pomoc a laskavý a vstřícný přístup. Děkuji také své rodině za podporu a toleranci. 7 8 Obsah práce: Resumé 11 1. Úvod 15 2. Politický systém před rokem 1989 17 2.1 Období tzv. Třetí republiky 17 2.2 Ústava 9. května 1948 18 2.3 Ústavní řád ČSSR 18 2.4 Komunistický mocenský systém 21 2.5 Příčiny krize a pádu totalitního režimu 22 3. Přechod čs. společnosti k demokracii 29 3.1 Pád komunismu 29 3.2 Ústavní vývoj v letech 1989 – 1992 32 3.2.1 Období od revoluce do prvních svobodných voleb 32 3.2.2 „První“ svobodné volby 44 3.2.3 Období od prvních svobodných voleb do voleb v roce 1992 48 3.2.4 Volby v roce 1992 a období krátce po nich 61 3.2.5 Ústavní změny související s rozpadem Československa 63 3.3 Vznik a přijetí Ústavy z 16. 12. 1992 68 4. Ústava České republiky a její problematická místa 71 4.1 Ústavní zákon č. 1/1993 Sb., Ústava České republiky 71 4.2 Problematická místa v Ústavě České republiky 73 5. Politická kultura v Česku 77 6. Transformace morálky 80 6.1 Nezbytnost transformace morálky 80 6.2 Význam morálky v transformující se ekonomice 80 6.3 Úloha státu v procesu transformace morálky 82 7. Závěr 85 Seznam použitých zdrojů a pramenů 89 9 10 Resumé The events which occurred in Czechoslovakia in the end of the year 1989 have completely changed further development of the country. The authoritarian communist regime lasting more than 40 years virtually collapsed in the course of several days and Czechoslovakia entered upon a new era towards freedom and democracy. The change of the constitutional system was one of the first and fundamental changes required by the political and social system democratisation process as it represents its institutional, normative and value basis. Necessity and character of changes obviously arose out of the very undemocratic character of the Constitution and constitutional laws of the former Czechoslovakia. The procedure and means of changes were affected by the 40 year lasting period spent in the undemocratic environment with the lack of freedom and to a certain extent by the nonviolent nature of the November Revolution. For these reasons the work first of all describes the constitutional code and political system of the socialist Czechoslovakia, causes of the crises and collapse of the communist regime and it also mentions events from November 1989. As apparent from the name “Development of the Constitutional System after the Year 1989”, the presented work deals mainly with the changes in the area of constitutional law, namely the changes which were carried out in the period from November 1989 till the end of 1992. Within this relatively short period of time from the constitutional code there were removed attributes of the communist regime which represented the major obstacles for the democratic development and the fundamental conditions for establishing the Rule of Law with democratic principles were formed. This short period of time was also long enough for developing disagreements between the Czech and the Slovak thanks to the retrieval of freedom. Strong wave of nationalism and disputes primarily arising from the constitutional law turned out to be insurmountable. By the end of the year 1992 both nations managed to adopt their own Constitutions and agreed on the separation of their common state. Description of the constitutional development is concluded with the introduction of the Constitution of 16 December 1992, which was the basic law of the newly established independent Czech Republic. The main goal of the work is to make a clear survey which will enable an easier outlook on this rapid constitutional development. 11 Basic conditions for democracy development were formed in the course of three years. However, even after 25 years of its lasting it is impossible to characterize the democracy as advanced. The author tries to find reasons for this state in the chapters devoted to the Czech political culture and moral, the transformation of which is a necessary precondition of the successful transformation of the whole society. The final chapter provides general reflections on democracy. 12 Resumé Na konci roku 1989 došlo v Československu k událostem, které zásadně změnily směr jeho dalšího vývoje. Autoritářský komunistický režim trvající přes 40 let se prakticky během pár dní zhroutil a Československo nastoupilo cestu ke svobodě a demokracii. Jednou z prvních a zásadních změn, kterou proces demokratizace politického a spole- čenského systému vyžadoval, byla změna ústavního systému. Ten totiž představuje jeho institucionální, normativní a hodnotový základ. Potřebnost provedených změn a jejich povaha byla dána pochopitelně především samotným nedemokratickým charakterem Ústavy a ústavních zákonů bývalého Česko- slovenska. Postup a prostředky, jakými byly změny prováděny, byly ovlivněny 40 lety strávenými v nesvobodném a nedemokratickém prostředí, a do jisté míry také nenásil- ným charakterem listopadové revoluce. Z těchto důvodů je v práci předně připomenut ústavní řád a politický systém socialistického Československa, popsány příčiny krize a pádu komunistického režimu a vzpomenuty události z listopadu roku 1989. Předkládaná práce, jak je z jejího názvu „Vývoj ústavního systému po roce 1989“ patrné, je věnována především změnám v oblasti ústavního práva, a to změnám učiněným v období od listopadu 1989 do konce roku 1992. V této relativně krátké době byly z ústavního řádu odstraněny atributy komunistického režimu, které představovaly největší překážky na cestě k demokracii, a podařilo se vytvořit základní podmínky pro budování právního státu založeného na demokratických principech. Během tohoto krátkého období se díky znovu nabyté svobodě stačily také projevit rozpory mezi Čechy a Slováky. Vzedmutá vlna nacionalismu a spory především v otázce státoprávního uspořádání se ukázaly být nepřekonatelnými. Do konce roku 1992 stihly oba národy přijmout vlastní ústavy a dohodnout se na rozdělení společného státu. Popis ústavního vývoje končí představením Ústavy z 16. prosince 1992, základního zákona nově vzniklé samostatné České republiky. Hlavním cílem práce je tento doslova překotný ústavní vývoj zpřehlednit a usnadnit orientaci v něm. Základní podmínky pro rozvoj demokracie byly vytvořeny v průběhu tří let. Ani po 25 letech jejího trvání ji však stále není možné označit za vyspělou. Příčiny tohoto stavu se autor snaží nalézt v kapitolách věnovaných české politické kultuře a morálce, jejíž transformace je nutným předpokladem úspěšné transformace celé společnosti. Závěrečná kapitola je věnována úvahám o demokracii jako takové. 13 14 1. Úvod Loni v listopadu uplynulo 25 let od chvíle, kdy Československo opětovně nastoupilo cestu ke svobodě a demokracii. Na této cestě bylo a zcela jistě ještě bude třeba učinit mnoho kroků, neboť režim, ze kterého vyšlo, byl od svobody a demokracie na míle vzdálen. Změny, kterými Československo a později Česká republika na této cestě dosud prošla, se týkaly prakticky všech oblastí života společnosti i jedince. Některé kroky byly činěny neočekávaně rychle a s lehkostí, což bylo dle mého dáno počátečním nadšením a také neznalostí skutečné délky trasy, jiné kroky byly oproti tomu zvládnuty jen s nasazením veškerých sil. Jedny z prvních a zásadních změn, které proces demokratizace politického i společen- ského života vyžadoval, byly změny ústavního řádu. Ten totiž tvoří institucionální a normativní základ celého systému a bez jeho transformace a zakotvení nového hodnotového systému by nebylo možné činit další kroky vedoucí k demokracii a svobodě. Právě změny ústavy a ústavních zákonů umožnily započít proměnu celého právního řádu, změnit politický systém a zahájit změny v oblasti ekonomické a sociální. Ve své práci jsem se rozhodl jít po stopách ústavodárců a zmapovat část cesty, kterou v oblasti ústavního práva společnost prošla. Za cíl si kladu především podat ucelený obraz o ústavním vývoji v letech 1989 až 1992, tedy v období, které se vyznačovalo doslova překotným ústavním vývojem. Více či méně se proto věnuji téměř všem padesáti ústavním zákonům, které byly v této době přijaty, v některých případech se snažím také přiblížit motivy, kterými byli zákonodárci při rozhodování o té či oné ústavní změně vedeni. Jelikož podoba a průběh demokratizace byl pochopitelně silně ovlivněn charakterem končícího režimu, je první kapitola, nepočítám-li tuto úvodní, věnována období reálného socialismu. Připomínám v ní politický systém v Československu před rokem 1989, ústavní řád i komunistický mocenský systém. Snažím se také odhalit a popsat hlavní příčiny krize a pádu komunistického režimu. Kapitola stěžejní, nazvaná Přechod k demokracii, je uvedena podkapitolou věnovanou procesu zhroucení komunistického režimu v Československu. Způsob, jakým ho bylo dosaženo, byl totiž pro další vývoj do značné míry podstatný. V dalších podkapitolách je již popisován samotný ústavní vývoj v letech 1989 – 1992, rozdělený na období od revoluce do prvních svobodných voleb v roce 1990, a na období od těchto voleb do 15 voleb v roce 1992.
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