Les différents recours contentieux

Il existe en France deux ordres de juridictions : l’ordre judiciaire et l’ordre administratif. En leur vertu, le juge judiciaire est chargé du jugement des infractions pénales et de trancher les litiges entre les personnes, le juge administratif est chargé de contrôler l’administration et de trancher les litiges entre l’administration et les citoyens.

La justice administrative comporte trois niveaux de juridictions.

  • les tribunaux administratifs qui sont les juridictions compétentes de droit commun en première instance. C’est à eux que celui qui exerce un recours (que l’on appelle le requérant) doit d’abord s’adresser. Il en existe 42 en France.
  • les cours administratives d’appel sont les juridictions compétentes pour statuer en appel, à la demande d’une personne privée ou d’une administration, contre un jugement de tribunal administratif. Elles sont au nombre de 8
  • le Conseil d’Etat, est la juridiction suprême de l’ordre administratif.
    • Il est le juge de cassation des arrêts rendus par les cours administratives d’appel.
    • Il est par, ailleurs, juge d’appel en matière de contentieux des élections municipales et cantonales et pour les recours en appréciation de la légalité émanant des juridictions judiciaires.
    • Il est aussi compétent en premier ressort en cas de recours contre les décrets, actes réglementaires des ministres, décisions des organismes collégiaux à compétence nationale, ou mesures individuelles intéressant les fonctionnaires nommés par décret du Président de la République.

 

Il convient de s’adresser au juge administratif plutôt qu’au juge judiciaire, notamment pour les recours :

  • dirigé contre une décision prise par une autorité administrative : Etat, collectivité territoriale, établissement public, ou dans certains cas, organisme privé en charge d’un service public. On l’appelle le recours pour excès de pouvoir, par lequel le requérant demande l’annulation de la décision,
  • sollicitant une indemnité en réparation d’un dommage commis par une administration, ou résultant d’un ouvrage public ou de travaux publics.
  • contestant le montant d’impôts directs et de la TVA ;
  • contestant la régularité des élections municipales ou cantonales (tribunal administratif en premier ressort), régionales ou européennes (Conseil d’Etat en premier et dernier ressort)[1];

 

Le juge judiciaire est cependant compétent dans plusieurs matières administratives, notamment :

  • Impôts indirects, droits d’enregistrement et de douane, ISF ;
  • Dommage de toute nature causé par un véhicule en vertu de la loi 31 décembre 1957 attribuant compétence aux tribunaux judiciaires ;
  • Contentieux de l’état civil et de la capacité des personnes ;
  • Libertés de l’individu et le droit de propriété : en matière d’emprise irrégulière[2] et de voie de fait ;[3]
  • Litiges relatifs à la gestion du domaine privé de la personne publique.

 

Les différents types de recours 

  1. Le recours pour excès de pouvoir (REP)

« Le procès fait à un acte » selon Edouard Laferrière[4]

Il s’agit du recours par lequel le requérant demande au juge de contrôler la légalité d’une décision prise par l’administration et d’en prononcer, le cas échéant, l’annulation. La décision peut être de nature réglementaire (acte ayant un caractère général et impersonnel) ou individuelle (acte nominatif).

Comme souvent en matière administrative, aucun texte législatif n’organise le régime de ce recours qui est prétorien, soit de construction jurisprudentielle. Notamment par l’arrêt du Conseil d’Etat Dame Lamotte du 17 février 1950, qui le consacre en principe général du droit selon lequel toute décision administrative peut faire l’objet, même sans texte, d’un recours pour excès de pouvoir.

  • Décisions susceptibles de REP

Toutes les décisions de l’administration ne peuvent pas faire l’objet d’un REP, seulement celles qui constituent un acte décisoire susceptible de modifier l’ordonnancement juridique, aussi appelé acte ou décision faisant grief, c’est à dire susceptible de produire des effets juridiques. Ainsi, une mesure préparatoire ou un avis consultatif ne sont pas déférables au juge.

 

  • Conditions de forme et de délai

Le recours doit être formé dans un délai maximum de 2 mois après la publication ou la notification de l’acte attaqué. Toutefois lorsque le requérant exerce auparavant un recours gracieux devant l’autorité qui a pris la décision contestée ou un recours hiérarchique auprès de l’autorité supérieure à l’auteur de l’acte, l’administration dispose de deux mois pour répondre à cette demande, et le requérant d’à nouveau deux mois pour agir à compter de la réponse de l’administration.

Le requérant doit avoir la capacité d’ester en justice et un intérêt à agir.

Comme un certain nombre de domaine en première instance administrative, le ministère d’un avocat n’est pas obligatoire.

Le formalisme de l’acte n’est enfermé dans aucun cadre strict.

 

  • Nature du contrôle opéré par le juge

Le juge administratif chargé de contrôler un acte qui lui est déféré procède à deux types de contrôle : celui sur la légalité externe de l’acte, et celui sur la légalité interne, chacune de ces deux catégories regroupant trois cas d’ouverture du recours pour excès de pouvoir. Chaque cas d’ouverture correspond à un moyen ou un argument juridique pouvant être invoqué à l’appui du recours pour excès de pouvoir. Par exemple, le moyen de l’incompétence matérielle (défaut d’attribution) de l’auteur de l’acte qui est un moyen touchant à légalité externe de l’acte.

Les différents moyens pouvant ainsi être invoqués sont :

  • Légalité externe
    • Vice d’incompétence (3 cas d’incompétences de l’auteur de l’acte : territoriale, matérielle, temporelle)
    • Vice de forme (ex: défaut de motivation, signature, contreseing)
    • Vice de procédure (formalité préalable à l’adoption de l’acte)
  • Légalité interne
    • Illégalité des motifs de l’acte
      • Erreur de droit (ex: norme inapplicable)
      • Erreur dans la qualification juridique des faits
      • Erreur dans l’exactitude matérielle des faits
    • Illégalité relative au contenu de l’acte (violation directe de la loi)
    • Illégalité du but de l’acte (détournement de pouvoir ou de procédure)

Ce contrôle qui porte sur l’ensemble des cas d’ouverture est qualifié de contrôle normal.

Pour précision, traditionnellement, on ne distingue souvent que quatre cas d’ouverture: l’incompétence et le vice de forme (englobant le vice de procédure) en matière de contrôle de légalité externe, le détournement de pouvoir et la violation de la règle de droit (englobant la violation directe de la loi, l’illégalité relative aux motifs ou l’objet/contenu de la décision) en matière de légalité interne.

 

A noter, à propos de la qualification juridique des faits, que l’étendue du contrôle du juge de l’excès de pouvoir peut varier de plusieurs degrés, selon les pouvoirs dont dispose l’auteur de la décision attaquée et que celle-ci a été prise par l’administration dans une compétence liée ou dans l’exercice d’une compétence discrétionnaire.

En cas de compétence liée, qui correspond à une situation où l’administration ne dispose d’aucune marge de manœuvre dans la prise de décision (par exemple, elle est tenue de radier des cadres un fonctionnaire déchu de ses droits civiques) le contrôle sera strict : l’acte est annulé si l’administration prend une autre décision que celle qu’elle était tenue de prendre.

En cas de compétence discrétionnaire où l’administration possède plus de marge de manœuvre dans sa prise de décision, par exemple quand elle dispose du choix entre poursuivre et ne pas poursuivre un agent coupable de manquement à la discipline, le contrôle sera plus souple et gradué. Le contrôle peut ainsi être restreint lorsque le juge vérifie seulement que l’administration n’a pas commis une erreur manifeste d’appréciation[5] ou maximum, en particulier en matière de police et d’expropriation quand le juge apprécie l’exacte adéquation, ou encore la parfaite proportionnalité, entre les faits et la décision prise par l’administration.

 

 

  • Effets du contrôle

Si le juge, après avoir exercé son contrôle, décide d’annuler sa décision, les effets de l’annulation sont rétroactifs, comme si la décision n’avait jamais existée. Face aux nombreux problèmes que cela suscite (par exemple, si une subvention a été versée sur le fondement de la décision), de plus en plus de jugements prononcent l’annulation pour l’avenir seulement dans un souci de sécurité et de stabilité juridiques. (Arrêts de principes du CE Ass 11 mai 2004, Association AC ! et autres : privation effet rétroactif du jugement ; Ass 16 juil. 2007 Ste Travaux Tropic Signalisation : revirement de jurisprudence pour l’avenir seulement).

 

  1. Les recours de plein contentieux (ou de pleine juridiction)

« Le plein contentieux est aussi hétérogène qu’est homogène le contentieux de l’excès de pouvoir » René Chapus[6]

Dans ce cadre, le contrôle et les pouvoirs du juge sont plus larges qu’en matière de recours pour excès de pouvoir. Il peut, en effet, non seulement annuler réformer ou modifier une décision administrative, mais il peut également prononcer des condamnations pécuniaires, en particulier pour la réparation de préjudices.

On distingue entre :

  • Les recours plein contentieux subjectifs, où il s’agit pour le requérant de se faire reconnaître un droit: par exemple, dans le cadre d’une action en responsabilité contractuelle contre l’administration où une faute de cette dernière est invoquée.
  • Les recours plein contentieux objectifs où il s’agit plus de contentieux d’appréciation de légalité où le juge dispose de larges pouvoirs. Par exemple :
    • Dans le contentieux électoral, le juge peut rectifier les résultats proclamés par l’administration ce qui peut le conduire à déclarer vainqueur un candidat différent de celui arrivé en tête à l’issue du scrutin.
    • Dans le contentieux fiscal, il peut modifier le montant de l’impôt mis à la charge du contribuable.

 

  1. Les autres contentieux
  • Le contentieux répressif

Il ne concerne pas un recours dirigé contre un acte mais des poursuites dirigées contre des personnes en vue du prononcé de sanctions, par exemple en cas de contraventions de grande voirie. Ces dernières ont trait à des atteintes portées au domaine public, principalement les voies de communication autres que routières, qui relèvent du juge judiciaire (ex : détérioration d’un passage à niveau).

A cette catégorie se rattache le contentieux répressif des juridictions financières (Cour des comptes, chambres régionales des comptes, Cour de discipline budgétaire et financière).

  • Le recours en appréciation de légalité

Il est, le plus souvent, lié à une instance pendante devant le juge judiciaire. Dans ce contexte, la résolution du litige nécessite que soit tranchée au préalable une difficulté sérieuse relative à la légalité d’un acte administratif. Cette difficulté sérieuse constitue une question préjudicielle qui impose en principe au juge judiciaire de surseoir à statuer et de renvoyer cette question au juge administratif.

Avec le recours pour excès de pouvoir, le recours en appréciation de légalité fait partie de ce que l’on considère comme le contentieux de la légalité se distinguant ainsi du contentieux de pleine juridiction.

 

  1. Le cas particulier des procédures de référés

Dans le cas des précédents recours, les tribunaux administratifs sont saisis au fond pour des délais de jugement relativement longs. En cas d’urgence ou pour solliciter des mesures utiles (expertises ou provision), il est possible d’exercer des procédures de référés. Contrairement à une décision rendue au fond, les jugements de référés n’ont pas l’autorité de chose jugée, ils sont rendus à titre provisoire, sauf dans les cas les mesures sont de nature à faire disparaître une atteinte grave et immédiate à une liberté fondamentale telle la liberté syndicale. Dans ces cas là, les jugements ne peuvent revêtir qu’un caractère définitif, ils sont exécutoires et obligatoires.

Les différentes formes de référés sont prévues dans le code de justice administrative (CJA) aux articles L511-1 à L555-2.

 

Les référés non urgents sont susceptibles d’appel dans les quinze jours de leur notification, devant un juge unique de la cour administrative d’appel, puis d’un pourvoi en cassation. Les référés urgents, parmi lesquels le référé-suspension et le référé-conservatoire, peuvent faire seulement l’objet d’un pourvoi en cassation devant le Conseil d’Etat et le référé liberté d’un appel directement devant le Conseil d’Etat.

 

  1. Les référés urgents

1/ Le référé-suspension (art L521-1 CJA) permet d’obtenir la suspension de l’exécution d’une décision administrative (par exemple, permis de construire ou refus de titre de séjour). Il doit être accompagné d’une requête tendant à l’annulation ou à la réformation d’une décision administrative. La mesure de suspension prononcée par le juge des référés est provisoire. Elle cesse de produire son effet dès que le juge s’est prononcé sur la demande d’annulation. En fonction de l’urgence, le juge des référés se prononce dans un délai variant de 48 h à un mois ou plus.

 

2/ Le référé liberté (art. L521-2 CJA) permet d’obtenir du juge des référés « toutes mesures nécessaires » à la sauvegarde une liberté fondamentale à laquelle l’administration aurait porté atteinte de manière grave et manifestement illégale. Le juge se prononce dans ce cas en principe dans un délai de 48 heures.

 

3/ Le référé conservatoire ou « référé mesures utiles ». En application de l’article L. L. 521-3 du Code de justice administrative « en cas d’urgence et sur simple requête qui sera recevable même en l’absence de décision administrative préalable, le juge des référés peut ordonner toutes autres mesures utiles sans faire obstacle à l’exécution d’aucune décision administrative ».

 

  1. Les référés non urgents

1/ Le référé constat. En application de l’article R. 531-1 du Code de justice administrative « s’il n’est rien demandé de plus que la constatation de faits, le juge des référés peut, sur simple requête qui peut être présentée sans ministère d’avocat et même en l’absence d’une décision administrative préalable, désigner un expert pour constater sans délai les faits qui seraient susceptibles de donner lieu à un litige devant la juridiction ».

2/ Le référé instruction. En application de l’article R. 532-1 du Code de justice administrative prévoit que « le juge des référés peut, sur simple requête et même en l’absence de décision administrative préalable, prescrire toute mesure utile d’expertise ou d’instruction ». Ceci peut lui permettre notamment d’enjoindre à l’administration de communiquer les motifs d’une décision.

3/ Le référé provision. En application de l’article R. 541-1 du Code de justice administrative «le juge des référés peut, même en l’absence d’une demande au fond, accorder une provision au créancier qui l’a saisi lorsque l’existence de l’obligation n’est pas sérieusement contestable. Il peut, même d’office, subordonner le versement de la provision à la constitution d’une garantie ».

Cette procédure est l’équivalent du référé provision judiciaire qui est visé par l’article 849 du Code de procédure civile. Elle permet au requérant d’obtenir une avance sur les sommes qui leur seront allouées, en attendant que le montant exact de leur créance soit déterminé

 

  1. Les référés spéciaux

Ils sont nombreux. Parmi eux :

Le référé précontractuel organisé par les articles L. 551-1 et suivants du Code de justice administrative permet de censurer la violation des règles de publicité et de mise en concurrence qui doivent être respectées préalablement à la conclusion de contrats administratifs « qui ont pour objet l’exécution de travaux, la livraison de fournitures, avec une contrepartie économique constituée par un prix ou un droit d’exploitation, ou la délégation d’un service public ». Le juge pourra ordonner à l’auteur du manquement « de se conformer à ses obligations et suspendre l’exécution de toute décision qui se rapporte à la passation du contrat, sauf s’il estime, en considération de l’ensemble des intérêts susceptibles d’être lésés et notamment de l’intérêt public, que les conséquences négatives de ces mesures pourraient l’emporter sur leurs avantages » (Code de justice administrative, art. L. 551-2)

 

Le référé contractuel, visé par les articles L. 551-13 et suivants du Code de justice administrative, qui peut s’exercer après la conclusion du contrat par les personnes « qui ont un intérêt à conclure le contrat et qui sont susceptibles d’être lésées par des manquements aux obligations de publicité et de mise en concurrence auxquelles sont soumis ces contrats, ainsi que le représentant de l’Etat dans le cas des contrats passés par une collectivité territoriale ou un établissement public local ».

 

Le référé en matière fiscale (Articles L552-1 à L552-3)

Le référé en matière de communication audiovisuelle (Article L553-1)

Le référé matière d’urbanisme et de protection de la nature ou de l’environnement (Articles L554-10 à L554-12)

 

 

Quelques grands principes du contentieux administratif

La procédure est écrite

Elle donne lieu à la rédaction de mémoires qui sont échangés par les parties et à l’examen des procès-verbaux des mesures d’instruction. Toutes les pièces doivent figurer dans le dossier, les plaidoiries et les observations orales à l’audience ne pouvant que développer le contenu de ces pièces. La procédure évolue toutefois vers plus d’oralité. De même vers la dématérialisation en application du décret n°2012-1437 du 21 décembre 2012 : art. R. 611-8-2 s. CJA.

 

La procédure est contradictoire

Le tribunal recueille les arguments de toutes les personnes concernées par le litige et leur communique ceux des autres. C’est le principe du contradictoire impose que l’ensemble des éléments de l’affaire à juger soient connus par les parties qui doivent avoir la possibilité d’en discuter. Il constitue l’un des principaux aspects du droit à un procès équitable défini par l’article 6§1 de la Convention européenne des droits de l’homme. Il s’agit aussi d’un «principe général applicable à toutes les juridictions administratives » (CE, 20 juin 1913, Téry : Rec. p. 736, concl. Corneille ; S. 1920, III, p. 13) qui constitue, selon le Conseil constitutionnel, le corollaire du principe constitutionnel du respect des droits de la défense (CC, 29 décembre 1989).

 

La procédure est inquisitoriale

Contrairement à la procédure civile, qui présente un caractère accusatoire, la procédure administrative est une procédure inquisitoriale. Le juge commande la marche du procès. Il organise et dirige l’instruction de la requête. Il commande la marche du procès.

le juge peut notamment « exiger de l’administration compétente la production de tous documents susceptibles d’établir la conviction du juge et de permettre la vérification des allégations des requérants »(CE Ass., 28 mai 1954, Barel et a.).

 

 Quand le recours à un avocat est-il obligatoire ?

Selon cet extrait du site du Conseil d’Etat :


« En première instance
, le recours à un avocat est toujours facultatif, sauf exceptions prévues par les textes, notamment lorsque le recours a pour objet une demande d’indemnités en réparation de préjudices.

 

En appel, le recours à un avocat est le plus souvent obligatoire.

Devant la cour administrative d’appel, le recours à un avocat est obligatoire à l’exception :

  • des recours pour excès de pouvoir formés par les fonctionnaires et agents de l’État, des collectivités territoriales, des établissements publics et de la Banque de France contre les actes relatifs à leur situation personnelle ;
  • des litiges en matière de contraventions de grande voierie.

 

En cassation, devant le Conseil d’État, le recours à un avocat est toujours obligatoire sauf:

  • pour les pourvois en cassation contre les décisions de la commission centrale d’aide sociale ;
  • pour les pourvois en cassation contre les décisions des cours régionales des pensions ;
  • en revanche, les requêtes en excès de pouvoir qui relèvent de la compétence directe du Conseil d’État ne sont pas soumises à l’obligation d’avocat.

Cet avocat devra être choisi parmi les seuls avocats au Conseil d’État et à la Cour de cassation.

L’obligation de recourir à un avocat permet de s’assurer que l’administration et justiciable soient placés sur un pied d’égalité quant à leur connaissance de la procédure et du droit applicable, dans la mesure où, dans la majorité des cas, l’administration connaît mieux le droit et la procédure que le requérant. »

 

 

 

 

 

 

[1] Le conseil constitutionnel est compétents pour les autres élections : élection présidentielle, élections législatives et sénatoriales ou encore référendums

 

[2] une atteinte portée par une personne publique à un droit immobilier

 

[3] un acte de l’administration entaché d’une irrégularité grave et portant atteinte à une liberté fondamentale (comme le respect dû aux morts, le secret des correspondances postales, la liberté d’aller et venir etc..)

[4] Édouard Laferrière (1841-1901), vice-président du Conseil d’État de 1886 à 1898, et il est auteur du célèbre Traité de la juridiction administrative et des recours contentieux

 

[5] Initialement, le juge refusait de contrôler la qualification juridique des faits

[6] Professeur émérite de l’Université Panthéon-Assas (Paris II), notamment reconnu pour son ouvrage majeur de Droit du contentieux administratif, couronné par l’Académie des Sciences morales et politiques.

 

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