The subject of this study is the decrees having the force of law and their
judicial review in accordance with the Turkish Constitution of 1982. In the first
chapter of this study, the decree having the force of law and its introduction to the
judicial system of Turkey is examined as a legal institution and an act. The second
chapter of this study is the part of the regulations of the decrees having the force of
law in the era of the Constitution of 1982. In the third chapter, the judicial review of
the decrees is finally analyzed.
The institution of the decree having the force of law regulated by the
Constitution of 1961 (as amended on October 20, 1971: 1488), is replaced with some
amendments by the Constitution of 1982 and it has become a matter of debate in
many aspects up to the present. However, this institution could not be put into
practice effectively in the era of the Constitution of 1961. As a matter of fact, the
number of the decrees issued between the years of 1971 and 1980 is just 34.
As to the era of the Constitution of 1982, this institution put into practice
effectively in some periods, whereas it lost its effect in other periods neither. The
number of the decrees issued between the years of 1980 and 2001 reached up to 488,
unlike not a single decree issued between the years of 2002 and 2010. Actually, this
institution which had not been used since the Decree issued on 4th July, 2001, came
to the fore by means of the (Empowering) Law No 6223 dated on 6 April, 2011 and
this initiated new discussions on the decrees having the force of law.
In the first chapter of this study, the institution of the decree having the force
of law is examined in general. In this chapter, the decree having the force of law is
examined not only in the light of the conceptual and executional approach but also in
the light of historical approach. The concept of the decree having the force of law is xxiv
In the third chapter, the judicial review of the decrees having the force of law
is examined. This chapter consists of two main topics in a similar way with the
second chapter as "the judicial review of the decrees having the force of law issued
during" and "the judicial review of the decrees having the force of law issued during
states of emergency". It is aimed to determine the jurisprudence and the tendency of
the Constitutional Court in general by the judicial review of the decrees having the
force of law.
Under the heading of "the judicial review of the decrees having the force of
law issued during normalcy", the organ of judicial review, the way of judicial review
and the steps of judicial review are clarified. Accordingly, the decrees having the
force of law issued during normalcy can be reviewed by the Constitutional Court.
The Constitutional Court have been examining the constitutionality, in respect of
both form and substance, of the decrees having the force of law.
The judicial review of the decrees having the force of law is comprised of not
only three-aspects but also two-stage. The first stage of the judicial review is to
examine whether the provisions of the decrees having the force of law alleged
unconstitutionality are in conformity with the empowering law based on. The second
stage of the judicial review is to examine the constitutionality of these provisions. As
far as the aspects of the judicial review is concerned, it is comprised of the
constitutionality of the empowering law based on, the conformity of the decrees
having the force of law to the empowering law based on and the constitutionality of
these decrees.
The judicial review of the conformity of the decrees to the empowering law
based on can be varied by the constitutionality or unconstitutionality of the
empowering law. According to the jurisprudence of the Constitutional Court, the
unconstitutionality of the empowering law comes to mean that the decrees having the
force of law have no constitutional foundation. Consequently, at the stage of the
conformity to the empowering law, the constitutionality of the empowering law is
illuminated primarily. The elements of the empowering law and the significance,
necessity, urgency jurisprudence as to the conditions of the authorization to enact the
decrees with change of this jurisprudence are examined. Furthermore, the impact of xxv
the unconstitutionality of empowering law on the validity of the decrees having the
force of law is evaluated. Afterwards, the conformity of the decrees to the
empowering law which is not unconstitutional is discussed. Finally, the decrees of
having the force of law are examined from the point of the judicial review of
constitutionality and it is tried to determine the scope of this review in respect of both
form and substance.
The decrees having the force of law issued during states of emergency, unlike
the decrees having the force of law issued during normalcy, shall not be examined by
the Constitutional Court in principle. In accordance with the article 148 of the
Constitution, no action shall be brought before the Constitutional Court alleging
unconstitutionality as to the form or substance of decrees having the force of law
issued during a state of emergency, martial law or in time of war.
Notwithstanding the article 148 of the Constitution, the Constitutional Court
has declared that the Court determines itself the legal nature of the text alleged
unconstitutionality and the Court cannot be tied to the name of this text given by the
legislative or executive organs. For this reason, the Constitutional Court has
reviewed the decrees having the force of law issued during states of emergency,
which are alleged unconstitutionality in respect of whether they have the legal
characteristic of the decrees having the force of law issued during states of
emergency or not. As a result of this review, the Constitutional Court has declared
that some of the provisions of these decrees have not the legal characteristic of the
decrees having the force of law issued during states of emergency. Finally, under this
heading, this jurisprudence of the Constitutional Court is discussed.
In the conclusion section, the study comes to an end by evaluating the
findings discovered. In this section, some solutions to the problems relating to the
decrees having the force of law are offered and the changes of the jurisprudence of
the Constitutional Court are evaluated with the effect of these changes to the decrees
having the force of law. Finally, all the decrees having the force of law and all the
empowering laws issued up to the present are submitted for the readers by the
decrees having the force of law table and the empowering laws table in the appendix
section
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Bu çalışmanın konusunu, 1982 Anayasası ekseninde kanun hükmünde
kararnameler ve yargısal denetimi oluşturmaktadır. Çalışmanın birinci bölümünde
hukuki bir kavram ve işlem olarak kanun hükmünde kararname kurumu ile bu
kurumun hukukumuza girişi incelenmiştir. İkinci bölüm, 1982 Anayasası döneminde
getirilen kanun hükmünde kararname düzenlemelerine ayrılmıştır. Üçüncü bölümde
ise kanun hükmünde kararnamelerin yargısal denetimi incelenmiştir.
1961 Anayasası'nda değişiklik yapan 20 Eylül 1971 tarih ve 1488 sayılı
Kanun ile Türk hukukunda ilk kez düzenlenen kanun hükmünde kararname (KHK)
kurumu, bazı değişiklerle 1982 Anayasası'nda da yer almış ve düzenlendiği günden
bugüne dek birçok açıdan tartışma konusu olmuştur. Belirtmek gerekir ki 1961
Anayasası döneminde kanun hükmünde kararname kurumu, çok etkin bir uygulama
alanı bulabilmiş değildir. Nitekim 1971-1980 yılı aralığında yayımlanan kanun
hükmünde kararname sayısı yalnızca 34'tür.
1982 Anayasası döneminde ise bu kurum, bazı dönemlerde çok etkin bir
uygulama alanı bulmuşsa da diğer bazı dönemlerde ise bu etkinliğini oldukça
yitirmiştir. Nitekim 1980-2001 yılı aralığında yayımlanan kanun hükmünde
kararname sayısı 488'i bulurken; 2002-2010 yılı aralığında tek bir kanun hükmünde
kararname bile çıkarılmamıştır. 4 Temmuz 2001 tarih ve 631 sayılı KHK'nın
çıkarılmasından bu yana uzun süre kullanılmamış olan bu kurum, 6 Nisan 2011 tarih
ve 6223 sayılı Yetki Kanunu ile tekrar gündeme gelmiş ve 2011 yılında yayımlanan
kanun hükmünde kararnameler ile birlikte yeniden etkinlik kazanarak, farklı
tartışmalara neden olmuştur.xiii
Olağan dönemlerde çıkarılan kanun hükmünde kararnamelerin öncelikle bir
yetki kanununa dayanması zorunludur. Dolayısıyla bu bölümde öncelikle yetki
kanunu incelenmiş ve buna ilişkin olarak kanun hükmünde kararname çıkarma
yetkisi verilmesinin hukuki niteliği ile yetki kanununun unsurları ele alınmıştır.
Kanun hükmünde kararname çıkarma yetkisi verilmesi ise genel olarak Anayasa'nın
87'nci maddesinde, özel olarak Anayasa'nın 91'inci maddesinde düzenlenmiştir.
Dolayısıyla yetki kanununun unsurları ile bu unsurların niteliği, bu maddeler
arasındaki genel hüküm-özel hüküm ilişkisi göz önünde tutularak tespit edilmeye
çalışılmıştır.
Yetki kanununa ilişkin hususların ardından, yetki kanununa dayanılarak
çıkarılması gereken kanun hükmünde kararnameler incelenmiştir. Burada öncelikle
kanun hükmünde kararnamelerin konusu, diğer bir deyiş ile kanun hükmünde
kararnameler ile düzenlenebilecek alanlar belirlenmiştir. Nitekim Anayasa'nın 91 ve
163'üncü maddeleri, kanun hükmünde kararnameler ile düzenlenebilecek alanlar
açısından bazı sınırlamalar getirmiştir. Bununla birlikte Anayasa'nın birçok
hükmünde |