novembre 1989
1er octobre 2008
- Loi du 6 janvier 1986 fixant les règles garantissant l'indépendance des membres des tribunaux administratifs et cours administratives d'appel.
- Loi n° 87-1127 du 31 décembre 1987 portant réforme du contentieux administratif.
- Décret du 15 février 1988 portant création de cinq cours administratives d'appel.
- Décret du 28 septembre 1988, en application de la loi du 6 janvier 1986, relatif au statut particulier des membres du corps des tribunaux administratifs et cours administratives d'appel.
- Décret n° 89-915 du 19 décembre 1989 relatif à la gestion des tribunaux administratifs et des cours administratives d’appel.
- Loi organique du 1er août 2001 relative aux lois de finances.
- Loi d’orientation et de programme pour la justice du 9 septembre 2002.
- Décret du 28 décembre 2005 relatif au statut des membres du corps des tribunaux administratifs et cours administratives d'appel.
- Arrêté du vice-président du Conseil d’État du 18 septembre 2008 fixant les modalités de la réorganisation des services du secrétariat général du Conseil d'État.
Le service des tribunaux administratifs et des cours administratives d’appel du Conseil d’État assure la gestion de ces juridictions de 1990 à 2008.
La loi n° 87-1127 du 31 décembre 1987 portant réforme du contentieux administratif a pour objet de répondre aux problèmes des délais de jugement et adopter une structure moderne et durable à la juridiction administrative, formée alors par le Conseil d’État et les tribunaux administratifs. Ces derniers ont été créés par le décret du 30 septembre 1953 pour succéder aux conseils de préfecture. Ils étaient gérés par plusieurs services du ministère de l’Intérieur, ce qui fit naître le besoin de simplifier et d’unifier leur gestion.
La réforme de 1987 crée un nouvel échelon intermédiaire dans les juridictions administratives, les cours administratives d’appel, afin d’alléger la charge de travail du Conseil d’État et de réduire les délais de jugement. Cinq cours sont créées par le décret du 15 février 1988 et inaugurées dès janvier 1989 à Bordeaux, Lyon, Nancy, Nantes et Paris. La loi de 1987 prévoit également le transfert de la gestion des emplois et des crédits des juridictions administratives du ministère de l’Intérieur au secrétariat général du Conseil d’État, sous l’autorité du vice-président. La gestion des agents de greffe est, quant à elle, partagée entre le Conseil d’État et le ministère de l’Intérieur. Enfin, une répartition des compétences est observée entre le Conseil d’État et le garde des sceaux, ministre de la Justice, qui conserve la responsabilité politique. Ce dernier doit contresigner les lois ou décrets concernant la juridiction administrative et les décrets et arrêtés individuels concernant le corps des tribunaux administratifs (TA) et des cours administratives (CAA). Malgré tout, ce transfert de compétence bouleverse les pratiques et l’ensemble des organisations syndicales représentatives des magistrats invite ces derniers à observer une grève générale en juin 1990.
Pour assurer ces nouvelles missions, le Conseil d’État met en place au sein du secrétariat général un service spécialisé auquel sont confiés tous les aspects de la gestion des juridictions administratives, le service des tribunaux administratifs et des cours administratives d’appel. Le STACAA fonctionne dès novembre 1989 et assure la gestion de la carrière des magistrats, la gestion budgétaire des emplois des agents de greffe, les crédits de fonctionnement et les crédits immobiliers. Le transfert de compétence s'organise entre 1987 et 1990 et devient effectif le 1er janvier 1990 pour la gestion des magistrats et au 1er janvier 1991 pour la gestion des agents de greffe ainsi que pour les crédits de fonctionnement et d’investissement des juridictions. La rémunération des membres du corps des TA et CAA et des agents de greffe est alors transférée du ministère de l’Intérieur vers le ministère de la Justice pour être gérée par le Conseil d’État. Au 1er janvier 1991, près de 550 magistrats et 600 agents de greffe sont concernés par le transfert de gestion et pour faire face aux nouvelles attributions, les effectifs du service doublent rapidement. Pour l’accompagner dans la gestion des magistrats, le STACAA s’appuie sur le Conseil supérieur des tribunaux administratifs et des cours administratives d’appel (CSTA), créé par la loi du 6 janvier 1986 fixant les règles garantissant l’indépendance des membres des tribunaux administratifs. Le conseil est installé dans ses fonctions en 1988 avec pour mission de formuler des avis ou des propositions sur les mesures individuelles intéressant les membres du corps.
Entre 1990 et 2008, le STACAA accompagne la croissance de la juridiction administrative, développée dans ses effectifs, ses locaux et ses équipements. Le STACAA compte, en 2005, 35 agents chargés d’assurer la gestion de 1200 magistrats et de 1300 agents de greffe. Les différentes sections du service sont organisées en structures spécialisées dans la gestion des personnels (bureau de la gestion administrative des magistrats, bureau de la gestion des greffes) ou sur des aspects budgétaires et financiers (bureau des traitements et indemnités ou bureau des marchés et crédits de fonctionnement).
Entre 1992 et 2008, la gestion des juridictions nécessite la mise en place d’outils informatiques performants et la rénovation des procédures administratives. Des groupes de travail sont formés régulièrement afin d’améliorer la gestion des juridictions administratives. Les réformes du statut des membres du corps des TA et CAA visent à améliorer les conditions d’accès et de mouvements dans le corps. Le système de double gestion des agents de greffe, conçu dès l’origine comme un système provisoire, est amené à évoluer pour répondre aux attentes du personnel de greffe en matière de carrière, de rémunération et de reconnaissance au sein de la juridiction administrative. Des orientations sont convenues entre le ministère de l’Intérieur et le Conseil d’État entre 2004 et 2008 pour engager des réformes.
En ce qui concerne les locaux et les équipements, la loi d’orientation et de programme pour la justice du 9 septembre 2002 accorde d’importants moyens aux juridictions administratives pour la création de nouveaux tribunaux administratifs afin de réduire encore les délais de jugement de ces juridictions. Dans cette optique, la cour administrative d’appel de Versailles et le tribunal administratif de Nîmes sont respectivement créés les 1er septembre 2004 et 1er novembre 2006. Le STACAA assuret alors la gestion de 41 tribunaux administratifs et de 8 cours administratives d’appel. Le service assure la gestion financière des juridictions et, dans ce cadre, intervient dans toute la procédure budgétaire depuis la préparation du projet de loi de finances jusqu’à la répartition des crédits dans les juridictions. Depuis 2006, dans le nouveau cadre défini par la loi organique du 1er août 2001 relative aux lois de finances (LOLF), la juridiction administrative bénéficie d’un budget autonome et voit la simplification des autorisations parlementaires par la création d’un plafond d’emploi assorti d’un montant de crédits à ne pas dépasser.
La révision générale des politiques publiques (RGPP) engagée en 2007 et la perspective du rattachement, au 1er janvier 2009, de la gestion de la Cour nationale du droit d’asile au Conseil d’État suscitent une nouvelle organisation du fonctionnement de la juridiction administrative afin de gagner en lisibilité et en performance. En effet, les structures existantes mêlent à la fois des logiques fonctionnelles et des logiques sectorielles, ce qui entraîne des doublons entre les différents services. Des groupes de travail sont constitués en 2007 pour étudier les évolutions nécessaires à la juridiction administrative. Un projet de décret relatif à l’organisation et au fonctionnement du Conseil d’État est présenté au garde des sceaux et adopté le 6 mars 2008.
Une mission d’appui à la conduite du changement est réalisée par l’inspection générale des finances au cours du 1er trimestre 2008 pour accompagner la mise en œuvre des réformes engagées. Un arrêté du vice-président du Conseil d’État du 18 septembre 2008 fixe les modalités de la réorganisation des services du secrétariat général. Cet arrêté crée 4 directions fonctionnelles en mutualisant et renforçant les compétences pour couvrir l’ensemble du champ du Conseil d’État et de la juridiction administrative : la direction des ressources humaines, la direction de la prospective et des finances, la direction des affaires immobilières et la direction des systèmes d’information. L’arrêté, entré en vigueur le 1er octobre 2008, met fin au STACAA.
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