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Foglalkoztatás Jogi Szabályozása a Közszférában: a Jogi Szabályozás Két Neuralgikus Pontja: Az Állásbiztonság És a Kollektív Alku

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Foglalkoztatás Jogi Szabályozása a Közszférában: a Jogi Szabályozás Két Neuralgikus Pontja: Az Állásbiztonság És a Kollektív Alku A Service of Leibniz-Informationszentrum econstor Wirtschaft Leibniz Information Centre Make Your Publications Visible. zbw for Economics Nacsa, Beáta Working Paper Foglalkoztatás jogi szabályozása a közszférában: A jogi szabályozás két neuralgikus pontja: az állásbiztonság és a kollektív alku Budapest Working Papers on the Labour Market, No. BWP - 2013/9 Provided in Cooperation with: Institute of Economics, Centre for Economic and Regional Studies, Hungarian Academy of Sciences Suggested Citation: Nacsa, Beáta (2013) : Foglalkoztatás jogi szabályozása a közszférában: A jogi szabályozás két neuralgikus pontja: az állásbiztonság és a kollektív alku, Budapest Working Papers on the Labour Market, No. BWP - 2013/9, ISBN 978-615-5243-58-5, Hungarian Academy of Sciences, Institute of Economics, Centre for Economic and Regional Studies, Budapest This Version is available at: http://hdl.handle.net/10419/108491 Standard-Nutzungsbedingungen: Terms of use: Die Dokumente auf EconStor dürfen zu eigenen wissenschaftlichen Documents in EconStor may be saved and copied for your Zwecken und zum Privatgebrauch gespeichert und kopiert werden. personal and scholarly purposes. Sie dürfen die Dokumente nicht für öffentliche oder kommerzielle You are not to copy documents for public or commercial Zwecke vervielfältigen, öffentlich ausstellen, öffentlich zugänglich purposes, to exhibit the documents publicly, to make them machen, vertreiben oder anderweitig nutzen. publicly available on the internet, or to distribute or otherwise use the documents in public. Sofern die Verfasser die Dokumente unter Open-Content-Lizenzen (insbesondere CC-Lizenzen) zur Verfügung gestellt haben sollten, If the documents have been made available under an Open gelten abweichend von diesen Nutzungsbedingungen die in der dort Content Licence (especially Creative Commons Licences), you genannten Lizenz gewährten Nutzungsrechte. may exercise further usage rights as specified in the indicated licence. www.econstor.eu BUDAPESTI MUNKAGAZDASÁGTANI FÜZETEK BWP – 2013/9 Foglalkoztatás jogi szabályozása a közszférában A jogi szabályozás két neuralgikus pontja: az állásbiztonság és a kollektív alku DR. NACSA BEÁTA MAGYAR TUDOMÁNYOS AKADÉMIA KÖZGAZDASÁG- ÉS REGIONÁLIS TUDOMÁNYI KUTATÓKÖZPONT KÖZGAZDASÁGTUDOMÁNYI INTÉZET BUDAPESTI CORVINUS EGYETEM, EMBERI ERŐFORRÁSOK TANSZÉK Budapest Working Papers On The Labour Market Budapest Munkagazdaságtani Füzetek BWP – 2013/9 Foglalkoztatás jogi szabályozása a közszférában A jogi szabályozás két neuralgikus pontja: az állásbiztonság és a kollektív alku Magyar Tudományos Akadémia Közgazdaság- és Regionális Tudományi Kutatóközpont Közgazdaság-tudományi Intézet Budapesti Corvinus Egyetem, Emberi Erőforrások Tanszék Szerző: Dr.Nacsa Beáta PhD, egyetemi adjunktus Eötvös Loránd Tudományegyetem Állam – és Jogtudományi Kar Munkajogi és Szociális Jogi Tanszék email: [email protected] 2013. február ISBN 978 615 5243 58 5 ISSN 1785 3788 Kiadja a Magyar Tudományos Akadémia Közgazdaság- és Regionális Tudományi Kutatóközpont Közgazdaság-tudományi Intézete Foglalkoztatás jogi szabályozása a közszférában A jogi szabályozás két neuralgikus pontja: az állásbiztonság és a kollektív alku DR.NACSA BEÁTA Összefoglaló A tanulmány a közszféra és a magánszféra foglalkoztatásra irányuló jogviszonyainak egyes sajátosságai közötti különbséget elemzi, mikroökonómia kutatások támogatása céljával. Az elemzés a magyar közszolgálati szabályozás olyan neuralgikus kérdéseire fókuszál, mint az állásbiztonság és a kollektív alku. A tanulmány első fejezete a közszolgálati jogviszony alapvető jellegzetességeit tárgyalja, összevetve ezeket a foglalkoztatásra irányuló alapjogviszony, a munkaviszony sajátosságaival. A közszolgálati tisztviselő – állam belső jogviszonyt érdemileg nem határozza meg, csak tartalmában árnyalja a közhatalom gyakorlásán alapuló külső jogviszony. E fejezet rámutat, hogy a munkáltató – közszolgálati tisztviselő közötti jogviszony a munkavégzés „függő” jellegére tekintettel a munkajogviszony tágabb fogalma alá tartozik, s mint ilyennek meg kell felelnie a függő pozícióban lévő jogalany jogvédelmére vonatkozó, a munkajogviszony alapvető struktúrájából következő jogvédelmi követelményeknek. Ezért e körben szükségszerűen biztosítani kell az állásbiztonságot, a jogellenes felmentés elleni jogvédelmet, ugyanúgy, mint a munkajogviszony keretében. A közigazgatás tudomány rámutatott arra is, hogy az állás biztonsága a közigazgatás szakszerűségének, politika-mentességének és pártatlanságának egyik legfontosabb biztosítéka. Ezen okok miatt került végül sor mind az Alkotmánybíróság (mind a jelen tanulmányban nem tárgyalt Európai Bíróság) által a kormánytisztviselői és köztisztviselői jogviszonyra vonatkozóan az indokolás nélküli felmentés szabályának megsemmisítésére. E szabályok alkotmánybírósági megsemmisítését követően is beépültek azonban a 2011. évi új szabályozásba (Kttv.) olyan elemek, amelyek a továbbra is lehetővé teszik az at-will jellegű alkalmazást (bizalomvesztésre és méltatlanságra alapított felmentési okok esetén). A tanulmány másik témaköre a kollektív érdekképviselet lehetőségeit elemzi, és rámutat, hogy a közszolgálati tisztviselők kollektív érdekérvényesítéshez való joga rendkívül korlátozott Magyarországon. Habár a szervezkedéshez való jog az 1992. évi Ktv-ben még biztosított volt, a jelenleg hatályos Kttv. szabályai ezt lényegileg csorbítják a Magyar Közszolgálati Kar köztestületének életre hívásával. Az MKK államilag támogatott 2 szervezetként kerül versenyhelyzetbe a közszolgálati érdekképviselet ellátásában az államtól független, a köztisztviselők szervezkedési jogán nyugvó közszolgálati szakszervezetekkel. A közszolgálatban a kollektív alku már az 1992. évi szabályozásban sem volt biztosított, holott ez a fejlett ipari államokban gyakorlatilag általánosnak tekinthető, és ez felelne meg az ILO és a Szociális Karta irányadó rendelkezéseinek is. A tanulmány rámutat azon megoldásokra, amelyek alkalmazásával összehangolhatóak a költségvetési szempontok a kollektív alku biztosításához fűződő kollektív munkavállalói alapjogokkal. A sztrájktörvény 2010. évi módosítása, valamint az 1994-ben megkötött Közszolgálati Sztrájkmegállapodás érdemben korlátozza a közszolgálati tisztségviselők sztrájkhoz való jogát anélkül, hogy annak a nemzetközi jogban megkövetelt alternatíváját adná valamely kötelező alternatív vitakezelési eljárás formájában. Tárgyszavak: közszféra munkapiacai, vitafeloldás: sztrájkok, arbitráció, és mediáció; kollektív tárgyalás, munkavállalói jogok JEL kódok: J45, J52, J83 Köszönetnyilvánítás: Jelen tanulmány elkészítését az OTKA támogatta NK78255 nyilvántartási számú, Foglalkoztatás és bérek a közszférában. Mikroökonometriai elemzések c. kutatás keretében. 3 Legal regulation of the status of civil servants Two neuralgic aspects of the regulation: job security and right to bargain collectively BEÁTA NACSA Abstract The legal relationship between civil servants and the state, is not governed by the theory of sovereignty, which is relevant in the outer relationships between the state and its citizens, though it has some, limited effect on the inner relationships between the civil servant and the state organ, as well. The inner relationship falls into the category of “dependent work” and therefore civil servants must enjoy the employment rights generally applicable to employees with some alterations. Among such rights, two are investigated more closely in the paper: protection against unjust dismissal and collective rights of workers (right to organise, right to bargain collectively, and right to strike). In 2010 the Hungarian state modified its regulations on civil servants and introduced dismissal without notice referring to the argument that the parties of the legal relationship must be treated equally and because the civil servant can resign from its position without notice, the same right should be enjoyed by the state, as well. The Hungarian Constitutional Court and European Court of Justice nullified this law because of violating the right to work, the right to human dignity, and the right to hold public positions. The regulations on collective rights of civil servants have been systematically violated by the Hungarian legislator since 1992, when the first regulation on civil servants passed. Until 2011 the right to organise has been enjoyed without disturbance by civil servants but since than the state has organise the Bar of Hungarian Civil Servants into which all civil servants are obliged to enter. Because the Bar has rights which are usually considered to be union rights, therefore the Bar is a competitor of the civil servants’ unions; consequently the regulations on the Bar violate the right to organise. The right to bargain collectively has never been enjoyed by unions of civil servants since 1992, despite such right is generally applied in developed countries app. since 1960-1970s and is also accepted by the international conventions on social and economic rights. The right to strike is also restricted by the Agreement on Right to Strike in Civil Service (1994) which prohibits the rights to strike far beyond the limits established by the Fundamental Law and the Act on Right to Strike (Act No. VII of 1989). 4 Alternative methods of collective dispute settlement (mediation, arbitration) are also neglected by the Hungarian legal regime. Keywords: Public Sector Labor Markets, Dispute Resolution: Strikes, Arbitration, and Mediation; Collective Bargaining, Workers' Rights JEL: J45, J52, J83 5 A tanulmány a közszféra és a magánszféra
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