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Una propuesta de reforma electoral autonómica

Carlos Vidal Prado | 204 comentarios valoración: 3  34 votos
Vota 1 2 3 4 5
Resultado 3  34 votos

Desde finales de los ochenta, con escasos diez años de vida, nuestro sistema electoral comenzó a ser cuestionado. El debate ha ido incrementándose con el tiempo, y en los últimos años las propuestas de modificación han figurado en casi todos los programas electorales. El problema es que, en muchas ocasiones, se utilizan los conceptos de modo erróneo. Por ejemplo, no es cierto que la ley D’Hondt sea la “culpable” de la penalización a los partidos pequeños, sino el reducido número de diputados que se eligen en nuestras circunscripciones. O, cuando se habla de listas abiertas, en realidad se está hablando del “desbloqueo” de las listas cerradas, que son cosas muy diferentes.

Aunque normalmente la discusión se centra en las elecciones generales, y en concreto las elecciones al Congreso de los Diputados, siempre he defendido que las posibles reformas del sistema deberían empezar en el ámbito autonómico y local. Es un contexto más cercano al ciudadano, en el cual podrían haberse diseñado diferentes sistemas electorales, puesto que la Constitución no obliga a optar por un modelo determinado.

Aunque la Constitución española no concrete cuál debe ser el modo de elección de las Asambleas de las Comunidades Autónomas, sí establece algunos elementos básicos que han de respetar los respectivos Estatutos y, en su caso, las leyes electorales que los desarrollen. También la Ley Orgánica del Régimen Electoral General, siguiendo un mandato constitucional, establece algunos criterios globales sobre elecciones de Asambleas autonómicas, que configuran el marco en el que debe desenvolverse el sistema electoral de las Comunidades Autónomas. De lo que se trata es de determinar una serie de condiciones básicas que garanticen la igualdad de todos los españoles, como se afirma en el artículo 149.1.1 de nuestra Norma Suprema.

A pesar de que las disposiciones constitucionales y las de la LOREG dejaban abiertas muchas posibilidades para que las Comunidades Autónomas dispusiesen las cosas de tal manera que sus sistemas electorales pudieran diferenciarse entre sí, la evolución legislativa no ha seguido este camino y, en general, ha habido un efecto mimético con relación a la regulación electoral nacional. Este efecto ha llegado incluso a determinar una característica destacable de la regulación electoral en el ámbito autonómico, como es la de que la mayor parte de las Comunidades Autónomas, siguiendo la técnica legislativa iniciada por la Constitución, incluyen una parte importante de los elementos del sistema electoral en el articulado de sus respectivos Estatutos de Autonomía, dificultando así las posibles futuras reformas.

No obstante, en todas las Comunidades, aunque sea con más o menos límites, es posible reformar el sistema electoral sin necesidad de modificar el Estatuto. Un ejemplo de ello es la propuesta que hizo el Partido Popular en Madrid, que consistía en acercar el modelo de elección al previsto en Alemania. El debate público que se generó sobre esta propuesta no tenía nada que ver con la realidad, pues se mantenía escrupulosamente la proporcionalidad y, simplemente, permitía que una tercera parte de los escaños se asignasen a quienes hubieran vencido en su distrito uninominal.

Lo cierto es que casi todas las Comunidades Autónomas han optado, por ejemplo, por emplear también la circunscripción provincial. Esto se hace por inercia o mimetismo, pero ni la Constitución ni la LOREG obligan a ello. Las únicas excepciones son las lógicas de los territorios insulares: Canarias y Baleares poseen sistemas electorales que tienen en cuenta su idiosincrasia insular, y como consecuencia se generan efectos importantes en los resultados electorales, y diferencias notables en lo que se refiere a los resultados y a los sistemas de partidos existentes en dichas Comunidades, muy discutibles por cierto, especialmente en el caso canario. Del resto de Comunidades Autónomas, sólo Murcia y Asturias han previsto circunscripciones diferentes de la provincial, lo cual, evidentemente, provoca unas diferencias importantes en dichas Comunidades en lo que se refiere a los resultados electorales, que en algunos casos han podido condicionar incluso las coaliciones y el propio sistema de partidos. Así ha ocurrido en Asturias en las últimas elecciones.

No hace falta incidir demasiado en la idea de que son necesarias reformas y medidas que acerquen a las instituciones y a los políticos a los ciudadanos, sus representados. Una de ellas, sin duda, podría ser la de otorgar a los electores mayores posibilidades de decisión e influencia en los procesos electorales. Las listas cerradas y bloqueadas que se usan de modo casi exclusivo en España no contribuyen a este objetivo, más bien al contrario. Por tanto, y puesto que la idea de las listas abiertas es irrealizable, deberíamos plantearnos el desbloqueo de las listas cerradas. Este desbloqueo puede conseguirse de varias formas. Las más generalizadas son las que permiten a los electores señalar varias preferencias dentro de una lista de partido. Pero el mismo objetivo se consigue con un sistema electoral como el alemán, en el que los electores tienen una doble papeleta. En realidad es una sola papeleta dividida en dos partes. En una de ellas, se vota a un candidato individual, que un partido presenta por su distrito; en la otra, se vota al partido, que presenta también una lista cerrada y bloqueada en la circunscripción a la que pertenece ese distrito. Cada elector tiene la opción de hacer efectivos los dos votos: un voto individual (Ertstimme) y otro de lista (Zweitstimme), o de emitir solamente uno de los dos, dejando en blanco el otro. En realidad, estaría haciendo uso de su derecho al sufragio, en todo caso, puesto que si no señala ninguna opción su voto se computaría como voto en blanco. También puede elegir un candidato de un partido y votar a la lista de otro partido.

Con el voto individual está eligiendo un candidato en su distrito electoral. Con el voto a lista elige entre los partidos que se presentan en la circunscripción (en el caso de Alemania, es una lista por cada Estado federado). El reparto de escaños se hace a partir del resultado de los segundos votos, es decir, los votos a listas de partido, y la distribución se hace de modo absolutamente proporcional entre todos los partidos que hayan superado la barrera electoral nacional del 5%. Una vez determinados los escaños que corresponden a cada partido, los candidatos de ese partido que hayan conseguido vencer en su distrito individual tienen preferencia para ocupar los escaños de ese partido, “pasan por delante” de quienes hayan figurado en las listas cerradas y bloqueadas. Estos últimos ocuparán los escaños restantes, hasta llegar al total que proporcionalmente se le había asignado a ese partido.

Pues bien, una propuesta que me parecería muy saludable es la de intentar trasladar algunos elementos del sistema alemán a nuestras elecciones autonómicas o locales. Puesto que se basa en una fórmula proporcional, estaríamos respetando absolutamente el artículo 152.1 de la Constitución, que exige mecanismos de representación proporcional en las Comunidades Autónomas.

El número de diputados a elegir en distritos uninominales puede variar con relación al previsto en Alemania, que es la mitad. Así, la propuesta del PP madrileño planteaba la elección de un tercio del total de diputados.

En todo caso, siguiendo el modelo alemán, si en una Comunidad se eligen 120 diputados, en 3 circunscripciones provinciales, podría establecerse un sistema según el cual los partidos presentasen una lista cerrada y bloqueada por cada circunscripción, y los candidatos individuales se presentarían en los correspondientes distritos uninominales (60, la mitad de los diputados totales) en los que se dividirían las tres provincias.

El reparto de escaños entre los partidos se realizaría igual que ahora, tomando como base los votos totales a las candidaturas de los partidos en cada circunscripción provincial. Una vez hecho el reparto de escaños de cada partido en cada provincia, hay que pasar a analizar quién ocupará esos escaños. Si alguno de los candidatos individuales de ese partido ha triunfado —por resultar el más votado— en un distrito, automáticamente ocupa uno de los puestos que corresponden a su partido. El resto de los puestos se cubrirán con los integrantes de la lista cerrada.

Este sistema garantiza, por un lado, que haya un mayor número de electores que muestren sus preferencias que con el sistema de lista bloqueada. Por otro, que realmente los votantes puedan decidir también sobre personas, y no sólo sobre partidos. Me parece que esta modificación sería bien recibida por el electorado y podría incluso lograr una mayor afluencia a las urnas, al incrementar el interés de los votantes por las convocatorias electorales. La prueba está en que en Alemania los porcentajes de participación son bastante más altos que en nuestro país.

Carlos Vidal Prado es profesor Titular de Derecho Constitucional de la UNED

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