Des passeports diplomatiques mal acquis

Il ne revient pas à l’Assemblée de fixer le droit d’obtention d’un passeport diplomatique pour les députés. Le chef de l’État ne dispose d’aucun pouvoir discrétionnaire dans la délivrance de ce document

À propos du cadre juridique régissant le passeport diplomatique et des conditions de délivrance de ce titre de voyage aux députés

« Aucune législation n’existe en matière de protection accordée par le passeport diplomatique à des non diplomates et encore moins concernant les membres

de la famille du titulaire d’un tel passeport » – M-C Caillet « Le passeport diplomatique et les immunités : un fantasme juridique »[i]

Dns un débat public marqué par le scandale présumé des passeports diplomatiques impliquant des députés, il nous a paru utile de rappeler le cadre juridique régissant le passeport diplomatique (I) et les conditions de délivrance de ce titre de voyage aux députés de l’Assemblée nationale (II)

I-Le cadre juridique régissant le passeport diplomatique

Conformément aux dispositions de la loi n° 65-11 du 4 février 1965 sur la sortie du territoire national et l’émigration des citoyens sénégalais, tout citoyen sénégalais devant se rendre à l’étranger doit être muni d’un titre de voyage qui peut être un passeport diplomatique, un passeport de service, un passeport ordinaire ou un sauf-conduit. En application de cette loi, fut pris le décret n° 78-021 du 6 janvier 1978 (J.O. du 4 février 1978, pages 142-145) portant description du passeport diplomatique et du passeport de service et fixant les modalités de leur établissement [ii]

Sauf existence d’un décret non publié au Journal officiel (ce qui constituerait une illégalité manifeste), les modalités de délivrance du passeport diplomatique sont règlementées par le décret n° 78-021 du 6 janvier 1978, modifié par le décret n° 90-934 du 27 août 1990 qui en a abrogé et remplacé l’article 12 (J.O. du 6 octobre 1990, pages 469-470).

Les articles 1er à 4 sont consacrés aux dispositions communes au passeport diplomatique et de service. La description du passeport diplomatique est donnée aux articles 5 à 9. Les modalités d’établissement d’un tel document sont définies aux articles 10 à 13.

Les extensions abusives du périmètre des personnes bénéficiaires ont conduit à vider le passeport diplomatique de sa substance

Voici in extenso le texte de l’article 12 du décret de 1978, tel que publié dans le journal officiel du 6 octobre 1990, qui donne la liste des personnes qui peuvent prétendre au passeport diplomatique.

« Article 12 – Peuvent prétendre au passeport diplomatique, outre le chef de l’État, son épouse et ses enfants, les personnes désignées ci-après, ainsi que leurs épouses et enfants mineurs : le Président de l’Assemblée nationale ;

le Président du Conseil économique et social ;

les membres du gouvernement ;

le Premier Président de la Cour suprême et le Procureur général près ladite Cour ;

le Secrétaire général de la Présidence de la République ;

le Directeur de Cabinet du Président de la République ;

le Secrétaire du Conseil des ministres ;

les Délégués généraux ;

le Chef du Protocole de la Présidence de la République ;

le Chef d’État-Major général des Armées ;

le Haut Commandant de la Gendarmerie nationale ;

le Chef de l’État-Major particulier du Président de la République ;

l’Inspecteur général des Forces armées ;

le Grand Chancelier de l’Ordre national ;

les Recteurs des Universités de Dakar et de Saint-Louis ;

les Inspecteurs généraux d’État ;

le Contrôleur financier ;

le Secrétaire général du ministère des Affaires étrangères ;

le Directeur de Cabinet du ministre des Affaires étrangères ;

les Ambassadeurs honoraires.

Le passeport diplomatique peut être délivré aux personnes ci-après : les membres du Bureau de l’Assemblée nationale et leurs épouses ;

les fonctionnaires détachés par le gouvernement dans les organisations internationales dont le siège se situe en dehors du Sénégal, lorsque les statuts de ces organisations confèrent aux intéressés le statut diplomatique.

les fonctionnaires de la hiérarchie A du cadre des Affaires étrangères et les agents membres du personnel diplomatique en poste à l’étranger, ainsi qu’à leurs épouses et leurs enfants mineurs ;

le Directeur général de la Sûreté.

Peuvent également obtenir le passeport diplomatique, les anciens chefs d’État les anciens chefs de gouvernement et les anciens ministres des Affaires étrangères qui en font la demande, sur la décision du chef de l’État, après avis du ministre chargé des Affaires étrangères. »

Il résulte de la rédaction actuelle de l’article 12 que le président de République ne dispose d’aucun pouvoir discrétionnaire dans la délivrance du passeport diplomatique. Son intervention n’est prévue qu’à l’article 12 pour un passeport demandé par un ancien chef d’État, un ancien chef de gouvernement et un ancien ministre des Affaires étrangères dont la délivrance est soumise à une décision du chef de l’État, après avis du ministre chargé des Affaires étrangères (voir le dernier alinéa de l’article 12) et à l’article 24 pour la délivrance aux anciens membres du gouvernement d’un passeport de service « carnet », après avis du ministre chargé des Affaires étrangères.

Si on s’en tient à la lettre de l’article 12 du décret de 1978, modifié, ne peuvent pas prétendre à un passeport diplomatique : les membres de la famille du chef de l’État ou du président de l’Assemblée nationale (en dehors de leurs épouses et enfants), les conseillers du président de la République, les anciens membres du gouvernement, les secrétaires généraux des ministères (hors ministère des Affaires étrangères), les membres des cabinets ministériels (directeurs de cabinet à l’exception du directeur de cabinet du ministère des Affaires étrangères, chefs de cabinet et attachés de cabinet), les Directeurs généraux, les chefs religieux, les marabouts, les chefs de partis politiques et, de manière générale, toute autorité et tout fonctionnaire ou magistrat non cités à l’article 12.

D’évidence, les dispositions de l’article 12 du décret de 1978 s’appliquent uniquement aux personnes précisément et limitativement énumérées audit article.   En clair, aucune disposition du décret de 1978 ne donne au président de la République le pouvoir discrétionnaire d’étendre l’octroi du passeport diplomatique à des personnes non énumérées à l’article 12.

Les conditions de délivrance du passeport diplomatique aux députés

En 2002, il fut introduit dans le Règlement intérieur de l’Assemblée nationale (la loi n° 2002-20 du 15 mai 2002) un article 106 dont l’avant-dernier alinéa dispose : « Pendant toute la durée de leur mandat, les députés à l’Assemblée nationale ont droit à un passeport diplomatique, dans les mêmes conditions que les membres du gouvernement ».

D’abord, une observation pour relever une violation de la Constitution : le droit d’obtention d’un passeport diplomatique pour les députés est prévu par l’article 106 du Règlement intérieur de l’Assemblée nationale alors que la Constitution n’inclut pas cette compétence dans le domaine de la loi.

En effet, le cadre juridique et les modalités de délivrance du passeport diplomatique relevant du domaine réglementaire, c’est-à-dire du pouvoir exécutif. Il ne devrait pas revenir, à notre avis, à l’Assemblée nationale le pouvoir de fixer le droit d’obtention d’un passeport diplomatique pour les députés. Il est permis de se demander pourquoi le Conseil constitutionnel a déclaré conformes à la Constitution toutes les dispositions de la loi du 16 avril 2002 (décision n° 1-C-2002) sans aucune réserve sur l’article 106 .

En spécifiant que le député a droit à un passeport diplomatique, dans les mêmes conditions que les membres du gouvernement, le législateur donne aux parlementaires et à leurs conjoints et enfants mineurs le droit de bénéficier par extension de l’octroi du passeport diplomatique.

Or, aux termes de l’article 12 du décret de 1978, au sein de l’Assemblée nationale, seuls le président et ses épouses et enfants mineurs ainsi que les membres du Bureau et leurs épouses (pas les enfants) ont le droit de disposer d’un passeport diplomatique. Tous les autres députés ainsi que leurs épouses ne peuvent prétendre qu’à un passeport de service « carnet » selon l’article 24 du même décret.

Par ailleurs, peuvent prétendre au passeport de service « carnet », notamment : les hauts fonctionnaires et agents supérieurs qui accomplissent de nombreuses missions officielles à l’étranger ;

les doyens et assimilés ;

les membres de la Cour suprême ainsi que le Premier président de la Cour d’appel et le procureur général près la Cour d’Appel ;

les anciens membres du gouvernement, sur décision présidentielle.

Les conditions de délivrance du passeport diplomatique et de service aux députés décrites dans l’annuaire de l’Assemblée nationale publiée dans Les Cahiers de l’Alternance n° 7 (pages 164 et 165) sont données ci-dessous.

Passeport diplomatique : Ont droit au passeport diplomatique : tous les députés une seule épouse ; les enfants mineurs, âgés de moins de 21 ans, des membres de bureau.

Passeport de service : Est délivré aux enfants mineurs des autres députés.

Conditions de délivrance des passeports diplomatiques et de service

Pour le député : une demande manuscrite adressée à Monsieur le Ministre des Affaires étrangères et des Sénégalais de l’Extérieur ;

deux photos d’identité.

Pour l’épouse : une demande manuscrite du député adressée à monsieur le ministre des Affaires étrangères et des Sénégalais de l’Extérieur ;

une photocopie légalisée du certificat de mariage ;

deux photos d’identité.

Pour les enfants : une demande manuscrite du député adressée à Monsieur le Ministre des Affaires étrangères et des Sénégalais de l’Extérieur ;

une photocopie de la carte d’identité de l’enfant ou un extrait ou bulletin de naissance ;

deux photos d’identité

Cinq (5) enfants par famille ont droit à ces passeports.

Toutes les demandes doivent être déposées auprès du Directeur des Relations interparlementaires et du Protocole.

Prorogation des passeports

Les passeports diplomatiques et de service sont valables un an. Les députés doivent déposer leur demande de prorogation un (01) mois avant la date d’expiration, auprès de la Direction des Relations interparlementaires et du Protocole.

On remarquera que seuls les enfants mineurs, âgés de moins de 21 ans, des membres de Bureau et une seule épouse ont droit au passeport diplomatique. Comment en est-on arrivé à en faire bénéficier toutes les épouses des députés ?

L’usage abusif ou frauduleux du passeport diplomatique par un député est passible de sanctions pénales (article 106 du Règlement intérieur de l’Assemblée nationale).

Aux termes de l’avant-dernier alinéa de l’article 106 du Règlement intérieur : « Est passible des sanctions pénales prévues par la loi, l’utilisation abusive ou frauduleuse (…) du passeport diplomatique ». En d’autres termes, si les allégations de fraude venaient à être corroborées, les députés incriminés seraient passibles des peines prévues par le Code pénal.

Au reste, on se demande si les députés incriminés comprennent bien la portée de cette disposition de la loi intérieure de l’Assemblée nationale. Dans l’affirmatif, pourquoi se sont-ils associés à une fraude à la loi, dangereuse pour la sécurité de la société ?

L’obligation de dénonciation de l’article 32 du Code de procédure pénale incombe au ministre des Affaires étrangères

S’il existe des indices tangibles d’infractions pénales relatives à l’établissement, à la délivrance ou à l’utilisation abusive ou frauduleuse du passeport diplomatique, il appartient au ministère des Affaires étrangères de saisir le Procureur de la République sur le fondement de l’article 32 du Code de procédure pénale qui prévoit : «  Toute autorité constituée, tout officier public ou fonctionnaire qui, dans l’exercice de ses fonctions, acquiert la connaissance d’un crime ou d’un délit, est tenu d’en donner avis sans délai au Procureur de la République et de transmettre à ce magistrat tous les renseignements, procès-verbaux et actes qui y sont relatifs ».

Les membres de l’Assemblée nationale ont des droits ainsi que des obligations. Mais lorsqu’ils ne respectent pas leurs obligations, ils doivent être sanctionnés.

Devrait également être sanctionné, pour négligence professionnelle, l’officier public du ministère des Affaires étrangères, responsable de ces dossiers, s’il n’a pas fait attester les noms et qualités des épouses des députés. Par contre, s’il a agi, par connivence coupable avec ces députés dont l’un serait un vice-président de la Commission des Affaires étrangères de l’Assemblée nationale, il serait punissable pour avoir attesté sciemment la fausse qualité de l’épouse du député à laquelle est octroyé un passeport diplomatique.

Aucune démocratie ne saurait tolérer des manœuvres frauduleuses au sein de l’institution parlementaire. Ces comportements frauduleux déshonorent la fonction de député et l’Assemblée nationale, et, portent gravement atteinte à l’image du Sénégal. Si les faits sont avérés, leurs auteurs et leurs complices devraient être sanctionnés avec une fermeté à la mesure de la gravité des infractions commises.

Mamadou Abdoulaye Sow est Inspecteur principal du Trésor à la retraite.

mamabdousow@yahoo.fr

[1] https://www.asso-sherpa.org/wp-content/uploads/2013/11/Immunit%C3%A9s-di…

[2] À cette date, seul le passeport ordinaire était règlementé par le décret n° 75-1087 du 23 octobre 1975 mais aucun texte de base n’existait pour le passeport diplomatique, en dehors de la circulaire n° 122 du 30 décembre 1968 du Président de la République (Cf rapport de présentation du décret n° 78-21).

[3] Il importe de remarquer que le dernier alinéa de l’article 12 ne mentionne pas le conjoint des anciens Chefs d’État, anciens Chefs de Gouvernement et anciens ministres des Affaires étrangères.

[4] En ce sens, voir le Considérant 11 de la décision n° 16-HCC/D3 du 05 septembre 2019 de la Haute Cour  Constitutionnelle de Madagascar sur le site : http://www.hcc.gov.mg/d3/decision-n16-hcc-d3-du-05-septembre-2019-relative-au-reglement-interieur-de-lassemblee-nationale/ consulté le 04 octobre 2021.

MAMADOU ABDOULAYE SOW

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