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La falta de afiliación al IESS como una infracción penal en el Ecuador

 

The lack of IESS affiliation as a criminal action in Ecuador

 


= 1

Dayana Carolina Mena López

=

https://orcid.org/0000-0003-2068-9258

 

Abogada de los Tribunales y Juzgados de la República del Ecuador, titulada por la Universidad de las Américas del Ecuador – Quito 2019; actualmente estudiante de la Maestría = en Derecho Laboral y Seguridad Social, seguido en la Universidad Tecnológica Indoamérica – Ambato, Facultad de Jurisprudencia, Ciencias Políticas y Económicas

dmena7@indoameri= ca.edu.ec

= 2

Danny Xavier Sánchez Oviedo=

=

https://orcid.org/0000-0001-5783-2682

 

Doctorando por la Pontificia Universidad Católica de Argentina. Posee título de maes= tría en Derecho mención Derecho Penal y Procesal Penal, Posee título de maestr= ía en Derecho Penal Económico, diplomatura en derecho procesal penal- mención experto litigante, Consejo de la Judicatura. Experto Universitario en Técnicas de Litigación en Juicio. Abogado titulado por la Pontificia Universidad del Ecuador Ambato. Actualmente profesor – investigador titul= ar de Derecho Penal y Teoría del Delito en la Universidad Tecnológica Indoamérica – Ambato; Coordinador de Posgrados de la carrera de Derecho Universidad Tecnológica Indoamérica

dannysanchez@uti.edu.ec=   =

 

 =

 

Artículo de Investigación Científica y Tecnológica

Enviado: 2= 4/02/2022

Revisado: = 21/03/2022

Aceptado: = 11/04/2022

Publicado:= 10/05/2022

DOI: https://doi.org/10.33262/visionariodigital.v6i2.2142  

 = ;

 

Cítese:

 

 

Mena López, D. C., & Sánchez Oviedo, D. X. (2022).= La falta de afiliación al IESS como una infracción penal en el Ecuador . Visionario Digital, 6(2), 89-106. https:= //doi.org/10.33262/visionariodigital.v6i2.2142<= /o:p>

 

 

 

 

VISIONARIO DIGITAL, es una revis= ta científica, trimestral, que se publicará en soporte electrónico tiene como misión contribuir a la   formación de profesionales competentes con visión humanística y crítica que sean capac= es de exponer sus resultados investigativos y científicos en la misma medida qu= e se promueva mediante su intervención cambios positivos en la sociedad. = https://vis= ionariodigital.org

La revista es editada por la Editorial Ciencia Digital (Editorial de prestigio registrada en la Cámara Ecuatoriana de Li= bro con No de Afiliación 663) www.celibro.org.ec

 

 

 

 

Esta revista está protegida bajo una licencia Creative Commons Attribution Non Commercial No Derivatives 4.0 Internatio= nal. Copia de la licencia: http://creativecommons.org/licenses/by-nc-nd/4.0= /.=

 =

 

Palabras claves: segu= ridad social, seguro social, derechos, afiliación, ultima ratio, sanciones.

 

 

 

Resumen

Introducción. La seguridad social en el Ecuador es un pilar fundamental en la estabilidad de las relaciones laborales, sociales= y económicas de la población; por lo que el presente estudio aborda las nociones y la protección que envuelve a la seguridad social, lo que permi= te entender la importancia de encontrarse categorizada como un derecho human= o. En ese contexto, se analiza el alcance y la situación actual de la presta= ción de este derecho en el Ecuador, así como la complejidad o necesidad de involucrar al derecho penal ante la falta de afiliación al seguro social ecuatoriano. Objetivo. Ident= ificar las ventajas y desventajas de la intervención penal y las posibles alternativas, en busca de que éstas sean eficientes y busquen proteger el derecho a la seguridad social, y a su vez sean menos lesivas a otros dere= chos considerando al principio de mínima intervención del derecho penal. Metodología. El método aplicado es la investigación jurídica de doctrina, princi= pios jurídicos, acontecimientos históricos, trabajos investigativos nacionales tratados y normativa que permitan obtener información relevante y nociones suficientes sobre el tema para llegar a una reflexión de la autora. Resultados. Entre los resultados que se obtuvieron aplicando la metodología investigativa, = se muestra que existe un choque de derechos y principios constitucionales a = la hora de ponderar al principio de ultima ratio del derecho penal frente al derecho a la seguridad social. Conclusión. Se concluyó que existen métodos o herramientas alternativ= as al uso del derecho penal frente a la falta de afiliación al IESS, como su= cede con las sanciones administrativas del Código Orgánico Administrativo.

 

 

Keywords:<= /b>

social security, soci= al security, rights, affiliation, ultima ratio, sanctions.

 

Abstract

Introduction. Social security in Ecuador is a fundamental pill= ar in the stability of labor, social and economic relations of the populatio= n; so, this study addresses the notions and protection that surrounds social security, which allows us to understand the importance of being categoriz= ed as a human right. In this context, the scope and current situation of the provision of this right in Ecuador is analyzed, as well as the complexity= or need to involve criminal law in the absence of affiliation to Ecuadorian social insurance. Objective. Identify the advantages and disadvantages of criminal intervention and al= ternatives, to make them efficient and seek to protect the right to social security, = and in turn be less harmful to other rights considering the principle of mini= mum intervention of criminal law. Me= thodology. The method applied is the legal investigation of doctrine, legal principles, historical events, national research works treated and normat= ive that allow to obtain relevant information and sufficient notions on the subject to reach a reflection of the author. Results. Among the results obtained by applying the research methodology, it is shown that there is a clash of constitutional rights a= nd principles when it comes to weighing the principle of ultima ratio of criminal law against the right to social security. Conclusion. It was concluded that there are alternative meth= ods or tools to the use of criminal law in the face of non-affiliation to the IESS, as is the case with the administrative sanctions of the Organic Administrative Code.

 

 

 

Introducción

A lo largo de la historia del derecho laboral ecuatoriano, se han visto distintos cambios encaminados= a mejorar el estatus de los trabajadores. En este contexto, el 7 de mayo de 2= 011 se realizó la consulta popular sobre la criminalización de la falta de afil= iación al sistema de seguridad social a trabajadores en relación de dependencia, lo cual terminó en un resultado favorable para el trabajador ecuatoriano de acuerdo con los resultados publicados (Registro Oficial Suplemento No. 490,= 2011).

Sin embargo, lo anterior también generó mucha coyuntura en una parte de la sociedad ecuatoriana al considerarlo como una sanción excesiva y desproporcionada. En ese sentido, = se analizará la legitimidad de tratar la conducta típica o el delito omisivo de la no afiliación al Instituto Ecuatoriano de Seguridad Social (IESS) de los trabajadores, como un delito de acuerdo con el artículo 244 del Código Orgánico Integral Penal (2014), en adelante COIP.

Por lo mismo, en el pres= ente estudio se revisa la importancia y necesidad de que dicha conducta deba ser criminalizada por la legislación, tomando en cuenta que el derecho penal po= see la característica de ser de ultima = ratio; para lo cual se analizan los tratados internacionales aplicables al tem= a, así como lo pronunciado por el desarrollo doctrinario sobre la temática y la jurisprudencia correspondiente.

De esta manera, mediante= el indicado ejercicio, se podrá identificar las ventajas y desventajas que pre= senta la intervención penal en esta conducta, y la posibilidad de revisar si exis= ten mecanismos menos agresivos y más eficaces para proteger los derechos de los trabajadores

Metodología

La metodología del prese= nte artículo se basa en el análisis e investigación jurídica de doctrina, princ= ipios jurídicos, acontecimientos históricos, trabajos investigativos nacionales tratados y normativa que permitan obtener información relevante y nociones suficientes para llegar a una reflexión o valoración jurídica del tema a estudiarse, considerando los factores de las relaciones sociales que se viv= en en la actualidad.

Fundamentación Teórica

La seguridad social

Para empezar, es indispensable comprender que la seguridad social tiene sus orígenes en el modelo alemán de Bismark, el cu= al define que los seguros sociales deben ser destinados a proteger a quienes mantienen una relación de dependencia. Así también, encontramos al modelo inglés de Beveridge, que se bas= a en la cimentación de un sistema nacional de salud universal sin importar la co= ndición laboral (Porras, 2015).

Actualmente, en el Ecuad= or, aunque predomina el modelo de Bisma= rk, con el tiempo y las necesidades sociales, se ha presentado una mixtura del referido modelo con el de Beveridge= , como sucedió con la aprobación de la Ley Orgánica para la Ju= sticia Laboral y Reconocimiento del Trabajo en el Hogar (2015), en la incorporación de = las amas de casa al seguro social. 

La naturaleza de la seguridad social radica en la propia condición del ser humano y la protecci= ón inherente a éste, es decir la seguridad social es un derecho humano, el mis= mo que ha sido reconocido por tratados internacionales de derechos humanos com= o la Declaración Universal de Derechos Humanos (1948) que indica: <= /p>

toda persona, como miembro de la sociedad, tiene derecho= a la seguridad social, y a obtener, mediante el esfuerzo nacional y la cooperación internacional, habida cuenta de la organización y los recursos = de cada Estado, la satisfacción de los derechos económicos, sociales y cultura= les, indispensables a su dignidad y al libre desarrollo de su personalidad (art.= 22).

Lo anterior se complemen= ta con el Pacto Internacional de Derechos Económicos, Sociales y Culturales (1= 967), (en adelante PIDESC) mismo que se encuentra ratificado por el Ecuador desde= el año 1969 (Organización de las Nacio= nes Unidas. 1969). El indicado instru= mento establece en el artículo 9 que “los Estados Partes en el presente Pacto rec= onocen el derecho de toda persona a la seguridad social, incluso al seguro social”= (Pacto Internacional de De= rechos Económicos, Sociales y Culturales, 1967), y también indica que el ejercicio y disfrute de este tipo de derechos debe irse expandiendo en el tiempo, de acuerdo a las capacidades de cada Es= tado en la prestación de los servicios necesarios para dar cumplimiento a estos (artículo 2), lo cual se conoce como desarrollo progresivo que a la luz del artículo 26 de la Convención Americana de Derechos Humanos, se refiere al compromiso de los Estados de ejercer acciones continuas y graduales para ha= cer efectivos los derechos económicos sociales y culturales de sus respectivos territorios, incluyendo a la seguridad social.   

De la misma manera, el derecho a la seguridad social está reconocido en nuestra Constitución a tra= vés del artículo 34 que manda lo siguiente:

El derecho a la seguridad social es un derecho irrenunci= able de todas las personas, y será deber y responsabilidad primordial del Estado= . La seguridad social se regirá por los principios de solidaridad, obligatorieda= d, universalidad, equidad, eficiencia, subsidiaridad, suficiencia, transparenc= ia y participación, para la atención de las necesidades individuales y colectiva= s. El Estado garantizará y hará efectivo el ejercicio pleno del derecho a la seguridad social, que incluye a las personas que realizan trabajo no remune= rado en los hogares, actividades para el auto sustento en el campo, toda forma de trabajo autónomo y a quienes se encuentran en situación de desempleo. (Constitución de la República del Ecuador, 2008)

En cuanto al aspecto doctrinario muchos investigadores coinciden en que la seguridad social es un derecho humano, así la profesora Porras (2015) indica:

 La seguridad social es un derecho humano, que ti= ene como fin proteger a todas las personas frente a las contingencias de la vid= a, derivadas de la falta de ingresos producidos por enfermedad, incapacidad, invalidez, vejez, desempleo o muerte. Está reconocido tanto en los instrume= ntos internacionales como en las constituciones y también en la Constitución del Ecuador. (p.92)

A su vez Vásquez (2009) señala:

Desde un criterio material, que la segurid= ad social sea un derecho humano y fundamental, es una consecuencia de ser un derecho necesario para garantizar la vida digna de las personas en comunida= d. También, ya partiendo de un criterio formal, por su consagración en tratados internacionales y a nivel constitucional en la gran mayoría de estados modernos, goza de la naturaleza de derecho humano, debido a lo primero, y de fundamental, debido a lo segundo. (p. 46)

De esta manera, al ser reconocida por los tratados internacion= ales y por la Constitución ecuatoriana, la seguridad social tiene el carácter de irrenunciable lo que significa que el trabajador en relación de dependencia= no pueda negarse a recibir este derecho bajo cualquier condición, y asimismo t= iene carácter de imprescriptible,  que h= ace referencia a que aun cuando se reclame en el futuro, el beneficio de este derecho continuará en el tiempo, lo cual es ratificado por la norma constitucional a través de sus artículos 55 y 57 (Constitución de la Repúbl= ica del Ecuador, 2008).

Respecto a las características antes mencionadas, la Corte Constitucional de Colombia (2015), en su sentencia SU567/15, 2015, ha indic= ado la importancia de los principios de imprescriptibilidad e irrenunciabilidad= de la seguridad social en la reliquidación de pensiones jubilares:<= /span>

La pensión de jubilación, vejez e invalidez, entre otras, no admiten una prescripción extintiva del derecho en sí mismo como cualquier otra clase de derechos, lo cual no significa que se atente contra el principio de segurid= ad jurídica; por el contrario, constituye un pleno desarrollo de principios y valores constitucionales que garantizan la solidaridad que debe regir en la sociedad, la protección y asistencia especial a las personas de la tercera edad, para mantener unas condiciones de vida digna, así como el derecho irrenunciable a la  seguridad , determinando  a su vez una realización efectiva del valor fundante que impone la vigencia de un orden económico y social justo, dentro de un Estado social de derecho (…) el afec= tado tiene derecho a reclamar lo debido en cualquier tiempo, puesto que los dere= chos adquiridos no pueden ser desconocidos por simples decisiones de las instituciones administradoras de pensiones, derechos que por lo demás son irrenunciables e imprescriptibles. (p.21)

Así, se puede distinguir= que la seguridad social abarca distintos blindajes o protecciones tanto en el ámbito internacional, como en la normativa constitucional, el derecho compa= rado y la doctrina que la distinguen como un derecho importante a la hora de asegurar una vida digna para las personas y protegerlas de las contingencias que se les puedan presentar.

Seguridad social vs. seguro social

La Ley de Seguridad Social (2001= ), indica que el seguro social protege a sus afiliados contra sucesos que afec= ten su capacidad laboral y la obtención de ingresos acordes con su actividad habitual, como son las enfermedades, la maternidad, los riesgos de trabajo,= la vejez, la muerte, la invalidez, la discapacidad y la cesantía (artículo 3).=

Los referidos sucesos son evento= s o contingencias propias de la naturaleza del ser humano en el ejercicio de sus actividades, lo cuales deben encontrarse bajo un manto de protección o aseguramiento por parte del Estado, y es ahí donde se desarrolla el seguro social como un elemento fundamental dentro del derecho a la seguridad socia= l.

En ese sentido, el seguro social= es una herramienta o elemento de la seguridad social pero no deben confundirse como sinónimos. Así Porras (2015), manifiesta que “(…) la seguridad social = es el derecho mientras que el seguro social y el piso mínimo de protección soc= ial son los medios para llevarlo a cabo” (p. 93= ).

Dicho de otro modo: <= /span>

todos los seres humanos por el simple hecho de pertenece= r a una sociedad, tiene derecho a un pleno derecho a la seguridad social, para = lo cual el Estado agotará todos los esfuerzos; mientras que el seguro social e= s la herramienta para hacerlo efectivo a través de las prestaciones que, frente a las contingencias reconocidas, brinda el Instituto Ecuatoriano de Seguridad Social. (Sánchez, 2021, p.21)

Es necesario indicar que= , si bien la seguridad y el seguro sociales, son conceptos diferente, éstos no se manejan de forma aislada o independiente, sino que conviven uno con el otro para ser eficientes. Así la Ley de Seguridad Social (2001), art. 1 indica que el seguro social “forma parte= del sistema de seguridad social”.  

Para entender cómo se relacionan la seguridad social con el seguro social, se deben considerar los principios que los fundamentan, como son la solidaridad, obligatoriedad, universalidad, equidad, eficiencia, subsidiariedad y suficiencia establecidos también en artículo 3 de la Ley de Seguridad Social (2001), = los mismos que como se verá más adelante, sirven para entender la esencia del u= so de los mecanismos estatales de protección de este derecho.

De esta manera, los cuat= ro primeros principios indicados anteriormente, hacen referencia a la relación= de la sociedad y los individuos que participan desde sus distintos niveles en = la promoción de la seguridad social. Así los principios de solidaridad y unive= rsalidad se refieren a la colaboración y ayuda entre los asegurados sin discriminaci= ón alguna y en igualdad de acceso a las prestaciones que ofrece el seguro soci= al.

A su vez, el principio d= e obligatoriedad se trata de la prohibición de pactar alteraciones que perjudiquen al afilia= do y su derecho a recibir la protección, así como de la coerción estatal para asegurar este derecho. Por su parte, el principio de equidad se refiere a la prestación de los servicios del seguro de manera proporcional al esfuerzo d= el afiliado, así como de la necesidad de éste.

En lo que respecta a los tres últimos principios, estos hacen relación a la actuación del Estado con= el afiliado y los servicios que presta. Así, el principio de eficiencia se ref= iere a la utilización económica de las contribuciones de manera oportuna, útil y evitando dispendios innecesarios. Respecto a la subsidiariedad, se trata de= la obligación del Estado   de robustecer las actividades de aseguramiento y complementar el financiamiento de las prestaciones que no pueden costearse totalmente con las aportaciones de los asegurados; y finalmente, el principio de suficiencia hace relación a la entrega de los servicios y prestaciones del seguro social, según el grado de capacidad lab= oral y económica del afiliado.

Se puede apreciar que el afianzamiento del derecho a la seguridad social involucra a la prestación d= el seguro social basada en principios de estricto cumplimiento, y además radica fundamentalmente en la importancia de una participación, e interconectada e= ntre empleador, afiliado y Estado. Todo lo anterior, más adelante será de vital importancia para entender el uso de las herramientas impuestas por el Estad= o en las relaciones laborales entre los referidos actores, ante la falta de afiliación al seguro social.

La seguridad social en Ecuador

La Ley de Seguridad Social ecuatoriana vigente, fue publicada en el Registro Oficial Nro. 465 de 30 de noviembre del 2001 y contempla la creación del Se= guro General Obligatorio y como regímenes especiales, el Seguro Voluntario y el Seguro Social Campesino.

Al respecto, hay que destacar que el tipo de seguro que se estudia en la prese= nte investigación, se trata del seguro general obligatorio, mismo que para ser entendido, merece una diferenciación de los dos regímenes especiales mencionados en líneas anteriores. Así, en la Ley de Seguridad Social (2001), tanto el seguro general obligatorio como el seguro voluntario tienen un carácter contributivo, es decir que dependen del financiamiento de los trabajadores, empleadores y ciertas contribuciones del Estado. A su vez, el primero se desarrolla en la cobertura de personas que ejercen alguna actividad económica como trabajadores dependientes (artículo= s 2, 4, 9 y ss.); y el segundo, en cambio, se diseña para todos aquellos que son independientes o sin relación de dependencia, es decir aquellos que no están obligados a encontrarse afiliados (artículos 152 y ss.). =

Por su parte el seguro social campesino (artículos 5, 128 y ss.), se refiere a = un mecanismo que se financia con el aporte solidario de las personas asegurada= s y empleadoras del sistema de seguridad social, con la aportación de los jefes de las familias protegidas, además de asignaciones fiscales. A él pue= den afiliarse las personas que viven en el sector rural y que se dedican al tra= bajo del campo como la siembra y cosecha de productos agrícolas y crianza de animales, así como los pescadores artesanales, a quienes se les entrega cie= rtas prestaciones de salud y económicas = (Ley de Seguridad Social, 2001)<= !--[if supportFields]> . Al respecto,= vale la pena apreciar cómo interactúan en este mecanismo de aseguramiento, los distintos principios de la seguridad social que vimos en el acápite anterio= r, como son el principio de solidaridad y el de subsidiariedad. 

En cuanto a los sujetos obligados a la protección del seguro general obligator= io, la Ley de Seguridad Social (2001), y sus reformas respectivas han incorporad= o a: 1) el trabajador en relación de dependencia, 2) el trabajador autónomo, 3) = el profesional en libre ejercicio, 4) el administrador o patrono de un negocio= , 5) el dueño de una empresa unipersonal, 6) el menor trabajador independiente, = y 7) las personas que realicen trabajo del hogar no remunerado (artículo 2).

A su vez, otro actor importante en la prestación y protección del derecho a la seguridad social en Ecuador es el Instituto Ecuatoriano de Seguridad Social= (en adelante IESS), creado constitucionalmente como la entidad responsable de la prestación de las contingencias del seguro universal obligatorio a sus afiliados, de acuerdo con el artículo 370 (Constitución de la República del Ecuador, 2008).

En la relación de los distintos actores en la prestación del derecho a la seguridad social, la normativa en seguridad social exige que tanto el afiliado como el empleador, aporten un porcentaje para el acceso al seguro social obligatorio. De esta manera, en = el sector privado, al afiliado le corresponde entregar un aporte al IESS del 9= ,45% de su sueldo o salario; mientras que, al empleador, el 11,15% del salario d= el trabajador; y a su vez, en el sector público, el Estado aporta un 9.15% del salario, y el funcionario público aporta un 11,45% (Ley de Seguridad Social, 2001). En este contexto, es importante indicar que la falta de pago constituye mora para el obligado, y por lo tanto da derecho al IESS a recla= mar lo adeudado con sus intereses respectivos. 

Estos aportes personales y patronales al IESS conforme lo indicado se establecen en base a un porcenta= je estático conforme su retribución salarial. Tienen su base fundamentalmente = en el principio de solidaridad que busca la ayuda mutua entre las personas de distintos sectores económicos, del más fuerte hacia el más débil.

Este principio “desde el punto de vista constitucional, tiene el sentido de un deber impuesto a t= oda persona por el solo hecho de su pertenencia al conglomerado social— consist= ente en la vinculación del propio esfuerzo y actividad en beneficio o apoyo de o= tros asociados o en interés colectivo. (Cañón, 2017)

El derecho penal como mecanismo sancionatorio ante la falta de afiliación al I= ESS

Como se analizó anteriormente, la seguridad social forma parte del catálogo de l= os derechos económicos, sociales y culturales, los cuales, al ser tan esencial= es para el bienestar de las personas, y al encontrarse comprometidos en el desarrollo progresivo de los Estados, han sido tomados en cuenta en regulac= iones importantes a la hora de buscar su protección.

De esta manera, aparece el derecho penal en la tipificación de conductas que atentan al orden social del Estado y a los trabajadores, buscando regular l= as relaciones jurídicas y proteger la desigualdad de condiciones, así como los derechos consagrados y reconocidos en acuerdos internacionales. =

En ese sentido el Código Orgánico Integral Penal (2014), ecuatoriano tipifica = como una infracción penal a la falta de afiliación de los trabajadores en relaci= ón de dependencia al Instituto Ecuatoriano de Seguridad Social. Las penas por = la no afiliación dentro de treinta días, contados a partir del primer día de labores dependen de la naturaleza del empleador.

Cuando el empleador es una persona jurídica, la multa es de tres a cinco salarios básicos unificados del trabajador en general (USD$1.275,00 a US$2.125,00) p= or cada trabajador no afiliado (artículo 243), y cuando el empleador es una persona natural, se impone prisión de tres a siete días (artículo 242). Cabe indicar que la sanción y pena indicadas, se imponen siempre que el empleado= r no abone el valor respectivo de afiliación, dentro del término de cuarenta y o= cho horas después de haber sido notificada.

Como se puede apreciar, una vez más los principios de la seguridad social juegan= un papel importante en su desarrollo, y en esta ocasión es a través del princi= pio de obligatoriedad que actúa como mecanismo coercitivo del Estado al imponer medidas sancionatorias a quienes no cumplan con las obligaciones de afiliac= ión a la seguridad social.

Esta actuación estatal es propia del sentido paternalista y de protección del Estado, que usa el derecho penal para tipificar delitos que se perpetran co= ntra el más débil de la relación laboral que es el trabajador, frente al emplead= or considerado como la autoridad o figura de poder en esa relación. Al respect= o Ferreiros (2015) opina lo siguiente:

El derecho pen= al del trabajo es (…) aquel que se ocupa de conductas criminales que, sin deja= r de afectar, en ciertos casos, a bienes jurídicos colectivos, tiene más acotado= el campo de perjudicados directos. Es que ya no se tiene en frente a víctimas iguales, sino a quienes está en situación de vulnerabilidad, por su estado = de dependencia y subordinación. (p.1)

El bien jurídico protegido en este caso es el derecho a la seguridad social a favor de aquel que se encontraría en vulnerabilidad por su condición de subordinación ante la falta del aseguramiento al acceso de las prestaciones contra las contingencias propias de la naturaleza del ser humano; las cuale= s el Estado tiene la obligación de proteger para que los ciudadanos se desarroll= en en un ambiente digno y sano, lo que se traduce en una obligación jurídica, vinculante y vigilada por mecanismos internacionales.

Una de las razo= nes que pueden respaldar la adopción del derecho penal como herramienta para la protección de la seguridad social, tiene que ver con las teorías justificat= ivas de la pena, las cuales se distinguen en prevención general y especial. Por = una parte, la prevención general de la pena entiende a este tipo de medidas como una coacción psicológica en las personas “(…) por más que se logre construir un discurso resocializador, la realidad enseña que la pena es utilizada como u= na amenaza” (Meini, 2013, p.149), y también propicia una conciencia social sobre la legitimidad de la norma, generando la confianza del colectivo y el respeto hacia el derecho frente a la pena.

A su vez, la prevención especial aplicada a la medida penal como herramienta para la pro= tección de la seguridad social, tiene que ver con la resocialización del individuo,= lo cual debe ser manejado con prudencia según aconseja Meini (2013):

No se entiende cómo el infractor podrá resocializarse si se le confina a un centro penitenciario en donde el conta= cto social es restringido —cuando no nulo— y donde imperan códigos de conducta = (o de supervivencia) que distan mucho del modelo que la resocialización pregona como válido para la convivencia pacífica y que rigen fuera de prisión. Si b= ien es verdad que el trabajo y la educación permiten redimir parte de la pena y= que esto podría ser visto como una preparación para la vida en sociedad, tambié= n lo es que las carencias materiales de los Estados impiden que en la mayoría de= los casos el trabajo o estudio al interior del centro penitenciario cumpla dicho objetivo. La resocialización no deja de ser una hipótesis cuyo fracaso se comprueba con la reincidencia y cuyo eventual éxito no puede imputarse con seguridad a la pena sino a la eficacia del sistema de persecución penal. (p= .152)

En ese sentido,= el mecanismo penal como correctivo frente a la falta de afiliación al IESS, pareciera desproporcionado y excesivo, con motivo de la resocialización del individuo que no cumple medidas contributivas y administrativas, sobre todo porque como se reflexiona de lo citado anteriormente, el fin de la resocialización penal no es una garantía de mejora en las relaciones jurídi= cas laborales.

Discusión

Si bien hemos analizado el alcance y la importancia del derecho a la seguridad social, así como sus mecanismos de protección en Ecuador, lo cierto es que sigue siendo de gran debate la aplicación del der= echo penal frente a la falta de afiliación del trabajador en relación de dependencia.

La referida discusión tiene su base en los mismos princi= pios del derecho penal como lo es el de ultima ratio y mínima intervención, que indican que el tratamiento penal para conductas determinadas, debe ser muy estricto en identificar las acciones u omisiones que merecen ser considerad= as como infracciones penales, ya que es considerado como la medida más lesiva y coercitiva del derecho.

Al respecto la Corte Constitucional de Colombia (2010), en la sentencia No 034= -10-SEP-CC, 2010, sobre el principio de mínima intervención penal, dijo lo siguiente:

<= span style=3D'mso-bookmark:_Toc88743434'>El principio del Derecho Penal como ultima ratio se soporta en dos postulados esenciales, a saber: a) que el derecho penal solo debe obrar en aquellos ca= sos en que el ataque a las condiciones mínimas de sobrevivencia de la sociedad = sea de tal magnitud que resulte francamente insoportable; o lo que es lo mismo = no es suficiente cualquier daño o riesgo para la sociedad, sino que debe ser de gran magnitud; y, b) que realmente no existan otras alternativas de respues= ta o de reacción por parte del Estado.

A su vez como lo indica Pérez (2009), el principio de ul= tima ratio consiste en:

(…) que la actuación del derecho penal procede únicamente cuando sea indispensable. A esta clase de derecho = se debe acudir exclusivamente si fallan los demás mecanismos de control social formal o informal; como quien dice, su puesto es el de instancia o escala f= inal en la búsqueda de solución de los conflictos sociales. (p.346)

La Constitución de la República del Ecuador (2008), establece en el artículo 195, que los actos fiscales y penales deben realiz= arse como último recurso, garantizando de esa manera el principio de mínima intervención penal. A su vez, el mencionado principio se encuentra consider= ado en el artículo 2 del COIP (2014) y establece que “constituye el último recu= rso, cuando no son suficientes los mecanismos extrapenales” (Pérez, 2009, p.347).

Se debe reconocer que la tipificación de falta de afilia= ción al Instituto Ecuatoriano de Seguridad Social se encuentra legitimada democráticamente por medio del referéndum realizado el 2011 (= Registro Oficial Suplemento No. 4= 90, 2011), lo cual ha tenido como base fundamental el hecho de que la seguridad social sea considerada un derecho humano, y a la propia realidad social del país en la que los trabajadores c= on los salarios más bajos o contratos precarios no tenían acceso a este derech= o. Sin embargo, desde otra perspectiva, esa legitimación se vería afectada o no sería suficiente con la existencia de un conflicto con los principios constitucionales de mínima intervención y última ratio del derecho penal. <= o:p>

Lo anterior además se vincula con el principio de proporcionalidad que es una garantía constitucional (artículo 76) relaciona= da a la equidad, la razonabilidad, la idoneidad, y a la ponderación que como ind= ica Carbonell (2008) la pena debe: “ser proporcionada en sentido estricto porque cualitat= ivamente el beneficio que obtiene el fin legislativo promovido por ella es mayor o i= gual al perjuicio que ocasiona al derecho fundamental” (p.27).=

Frente al choque de los principios reconocidos constitucionalmente sobre la aplicación del derecho penal de cara a la protección de la seguridad social existe una inevitable acción de ponderaci= ón que debe evaluarse según lo que indica Carbonell (2008): =

cuando existe un conflicto entre principios la solución no se decanta por la validez absoluta o no de uno de= los principios en conflicto, sino que ha de depender de las consideraciones particulares del caso el orden de prelación de estos. (p.29)

En consecuencia, el Estado debería prestar especial aten= ción frente a la excesiva sanción penal impuesta específicamente a empleadores c= omo personas naturales (Código Orgánico Integral Penal, 2014), y buscar herramientas menos represivas y de efectiva aplicación, con fines de garant= izar el respeto por los preceptos de mínima intervención consagrados tanto a niv= el internacional como en la Constitución ecuatoriana (artículo 195), pudiendo crear mecanismos más eficientes, aplicando medidas más severas respecto a sanciones y sobre todo la vigilancia del cumplimiento por vía administrativa que involucre la utilización de las herramientas coactivas con la que cuent= a la administración, o el destinar de mayores competencias a los inspectores de trabajo.

Al respecto, las infracciones que se someten al derecho administrativo sancionador son impulsadas en la Administración Pública. Se trata de una potestad punitiva del Estado frente a actuaciones prohibidas de los administrados. Mediante el derecho administrativo sancionador, “pueden imponerse sanciones a quienes incurran en la inobservancia de las acciones u omisiones que le son impuest= as por el ordenamiento normativo administrativo, o el que sea aplicable por la Administración Pública en cada caso” (López, 2005, p.184).

En ese sentido el Código Orgánico Administrativo estable= ce un régimen administrativo sancionatorio para determinar responsables e impo= ner sanciones aplicables a las relaciones jurídico-administrativas entre las personas y la administración pública. Frente al incumplimiento de las disposiciones y obligaciones administrativas existen medios administrativos= de ejecución forzosa (artículo 235 y ss.).

Entre los referidos medios o mecanismos se encuentra a la ejecución sobre el patrimonio que se refiere a seguir el procedimiento de coactiva encaminado a recuperar cantidades de dinero mediante una orden de cobro que acompaña en ciertos casos, la imposición del secuestro, la retenc= ión o la prohibición de enajenar bienes (artículo 261 y ss.).

Por su parte, también se encuentra la ejecución sustitutoria cuando implica una obligación de hacer = que pueda ser realizada por una persona distinta de la obligada. En ese sentido= , la administración pública ejecuta en forma sustitutoria, los actos que el obli= gada no ha cumplido. Para estos efectos la normativa indica que la= persona obligada debe pagar = los gastos generados por esta actividad de ejecución, con un recargo del 20% má= s el interés legal hasta la fecha del pago y la indemnización por los daños derivados del incumplimiento de la obligación principal (artículo 239).

Existe también el mecanismo= de multa compulsoria o clausura de establecimientos (artículo 240), a efecto de exigir el cumplimiento de un acto administrativo, que se aplican de forma proporcional y progresiva hasta lograr el cumplimiento efectivo de las= obligaciones, pero son independiente de otras sanciones que se impongan.

Finalmente, existe la compulsión sobre la persona (artículo 241) que se refiere a la imposición de acciones de hacer o no hacer o de soportar sin atentar contra su dignidad. = Se trata de una obligación personalísima que no puede ser ejecutada por otra persona, como la prohibición de entrada a un lugar, el desplazamiento de un lugar a otro, o como sucede en algunos lugares actualmente, la vacunación obligatoria.

 Esta potestad d= el Estado para sancionar surge del mandato constitucional que implica el velar= y garantizar los derechos de sus ciudadanos (Constitución de la República del Ecuador, 2008).

Por lo tanto, como lo indica Silva (2018):

esta potestad sancionadora de la administración “se caracteriza por ser un instrumento eficaz para la correc= ta ejecución de las funciones públicas y un medio por el que se asegura la consecución de los fines estatales (…) es un instrumento indispensable para= mantener la armonía en la sociedad. (p.34)

En el ámbito que nos compete, el Instituto Ecuatoriano de Seguridad Social, al ser una institución que pertenece a la administración pública, se encuentra facultada para promover procedimientos administrativos ante el incumplimiento de la afiliación al seguro social, y lo hace a travé= s de la imposición de sanciones por mora patronal (artículo 73), la responsabili= dad solidaria de representantes (artículo 75), retención de cesantía y fondos de reserva (artículo 76), prohibición de pagos directos de afiliación al trabajador (artículo 79), retención de créditos (artículo 82), entre otros.=

Sin embargo, en el caso de la falta de afiliación al IES= S, pudiera crear mecanismos administrativos más rigurosos sin afectar a la libertad de los obligados. Así, la rama laboral administrativa es la que debería usarse en principio para enmendar el derecho violentado con el fin = de que la contravención no sea usada como una herramienta de amedrentamiento s= ino como una garantía plena del derecho afectado.

Cabe señalar además, que para la promoción de la segurid= ad social, el Estado podría emprender campañas publicitarias y educativas sobre los beneficios de la afiliación a los trabajadores, e incluso más incentivos tributarios,  sin necesidad de transgredir o comprometer principios como el carácter de ultima ratio y mín= ima intervención del derecho penal, o vulnerar el derecho a la defensa como suc= ede con el plazo de cuarenta y ocho horas que se otorga al obligado para regist= rar el pago ante el IESS omitiendo además al principio de inocencia consagrado constitucionalmente en el artículo 76 de la (Constitución de la República d= el Ecuador, 2008).

No hay que perder de vista que la medida penal busca principalmente la contribución económica del empleador ya que ésta tiene incluso un plazo para el pago y una suerte de absolución frente a la sanció= n o la pena de efectuarse el mismo. En ese sentido como señala Peña (2016):

al ser el fin económico el evidentemente perseguido por la administración, esta figura punitiva se asemejaría a la retrógrada y ya derogada prisión por deudas, siempre que las causas de la falta de afiliación no sean con fines fraudulentos tipificados= en otras infracciones del COIP. (p.122)

En ese contexto, se deslegitimaría aún más la medida tom= ada como mecanismo de protección de la seguridad social pudiendo exigirse el pa= go por otros medios como lo es la vía administrativa de acuerdo con lo que se mencionó en líneas anteriores.

Conclusiones

·      =    La seguridad social es un derecho humano reconocido internacionalmente por convenios y tratados de derechos humanos, así como p= or la Constitución ecuatoriana, y que, por su naturaleza vinculada a la vida d= igna del ser humano, merece especial atención y mecanismos de control sobre su efectividad, acordes a sus características y a la naturaleza de la rama del derecho en la que se desarrolla.

·      =    El seguro social es una herramienta o elemento de = la seguridad social, es decir el seguro social es el piso mínimo de protección social que contiene los medios o prestaciones para llevar a cabo la protecc= ión de este derecho.

·      =    Los principios que abarcan la seguridad social son fundamentales para entender la importancia de este derecho y la relación que tiene con el seguro social como prestación para su ejercicio efectivo. La solidaridad, obligatoriedad, universalidad, equidad, eficiencia, subsidiariedad, sirven para entender la esencia del uso de los mecanismos estatales de protección de la seguridad social.

·      =    En la protección de la seguridad social aparece el derecho penal para regular las relaciones jurídicas y proteger la desiguald= ad de condiciones, sin embargo su legitimación se ve afectada con la existenci= a de un conflicto con los principios constitucionales de mínima intervención y última ratio del derecho penal frente a lo cual existe una inevitable acció= n de ponderación ya que al ser la herramienta más represiva del derecho sanciona= dor, genera cuestionamientos sobre su aplicación y excesividad .

·      =    Existen mecanismos o herramientas menos represivas= y de efectiva aplicación, que pueden usarse como reemplazo a la medida de der= echo penal con fines de garantizar el respeto por los preceptos constitucionales= de mínima intervención como la aplicación de medidas administrativas más sever= as que no impliquen la coerción de la libertad de las personas,  a través= del régimen de coactiva, la aplicación de multas, incluso la clausura de establecimientos, y sobre todo la originación de mecanismos de vigilancia d= el cumplimiento que involucre la asignación de mayores competencias a los inspectores de trabajo.

·      =    Las medidas del derecho penal para aplacar la comi= sión de ciertas conductas, muchas veces no tienen a finalidad de conciencia soci= al y resocialización del culpable ya que el contexto en el que se desarrolla la privación de la libertad en el país no genera confianza ni funciona en la realidad con objetivos de reinserción, lo cual podría ser perjudicial para = una persona  empleadora que ha cometido un hecho lesivo al derecho de segu= ridad social que puede ser protegido por otros medios menos lesivos.

 

Referencias Bibliográficas

Cañón, L. (2017). La solidaridad como fundamento del Estado social de derecho, de = la seguridad y la protección sociales en Colombia. Revista Páginas de Seguridad Social, 1 (1), 5-29. DOI: https://doi.org/10.18601/25390406.n1.01.

Cañón, L. (2017). La solidaridad como fundamento del Estado social de derecho, d= e la Carbonell, M. (Ed). (2008). El Principio de Proporcionalidad y la Interpretación Constitucional. Ministerio de Jus= ticia y Derechos Humanos. <= span style=3D'font-size:11.0pt;line-height:115%;font-family:"Calibri",sans-ser= if; mso-ascii-theme-font:minor-latin;mso-hansi-theme-font:minor-latin;mso-bid= i-font-family: "Times New Roman";mso-bidi-theme-font:minor-bidi;color:windowtext;text-de= coration: none;text-underline:none'>https://www.sedh.gob.hn/odh/documentos/dere= chos-penales/117-el-principio-de-proporcionalidad-y-la-interpretaci%C3%B3n-= constitucional/file

Código Orgánico Integral Penal. (2014). Asamblea Nacional. Registro Oficial No. = 180.

Constitución de la República del Ecuador. (20 de octubre del 2008). Asamblea Constituyente de Montecristi. Registro Oficial 449<= o:p>

Corte Constitucional de Colombia. (2015). Sentencia SU567/15.

Corte Constitucional del Ecuador. (2010). Sentencia No 034-10-SEP-CC.

Declaración Universal de Derechos Humanos. (10 de diciembre 1948). Artícul= o 22.

Ferreiros, E. (2015).  El derecho penal del trabajo. Revista de Derecho Laboral y Seguridad Soci= al, sv, 753-756 https://biblioteca.mpf.gov.ar/meran/opac-de= tail.pl?id1=3D25128

Ley de Seguridad Social. (30 de noviembre 2001). Congreso Nacional del Ecuador. Registro Oficial Suplemento 465.<= /o:p>

Ley Orgánica para la Justicia Laboral y Reconocimiento del Trabajo en el Hogar. (2015, 20 de abril). Asamblea Nacional= del Ecuador. Registro Oficial Tercer Suplemento 483.

López, M. (2005). Principios del procedimiento administrativo. Estudios en homen= aje a don Jorge Fernández Ruiz. Derecho administrativo. Tomo I. Univers= idad Nacional Autónoma de México

Meini, I. (2013). La pena: función y presupuestos. Revista de la Facultad de Derecho, sv (71)= , 141-167. https://www.corteidh.or.cr/tablas/r32497.pdf

Organización de las Naciones Unidas. (1969). Estado de ratificaciones.  https://treaties.un.org/Pages/Treaties.aspx?id=3D4&subid=3DA&a= mp;lang=3Den

Pacto Internacional de Derechos Económicos, Sociales y Culturales. (16 de diciembre, 1967).

Peña, J. (2016). La falta de afiliación al sistema de seguri= dad social como infracción penal. [Tesis de grado, Pontificia Universidad Católica del Ecuador].

Pérez, Á. (2009). Introducción al derecho penal. Temmis.

Porras, A. (2015). La seguridad social en Ecuador: un necesario cambio de paradig= mas. FORO Revista de Derecho, 89-116. https://revistas.uasb.edu.ec/index.php/foro= /article/view/453

Registro Oficial Suplemento No. 490. (13 de julio del 2011). Resultados del Referendum Consulta Popular. Consejo Nacional Electoral. <= /span>

Sánchez, C. (2021). La afiliación al seguro social ecuatoriano como una obligación= de los empleadores: hacia un pleno derecho a la seguridad social. e-Revista Internacional de la protección social, VI (1), 289-309. https://doi.org/10.12795/e-RIPS.2021.i01.13=

Silva, A. (2018). El procedimiento administrativo sancionador= y su aplicación en el Sistema Ecuatoriano de la Calidad. [Tesis de grado, Universidad Central del Ecuador].=

Vásquez, D. (2009). Diferencias entre el derecho de seguridad social y derecho de seguros. [Tesis de grado, Universidad CES de Medellí= n]. https://repository.ces.edu.co/bitstream/handle/10946/1908/Diferencia_dere= cho__seguridad_social_derecho_seguros.pdf?sequence=3D2&isAllowed=3Dy

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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El artículo queda en propiedad de la revista y, por tanto, su publicación parcial y/o total en otro medio tiene que ser autoriz= ado por el director de la Revista Visi= onario Digital.

 

 

 

 

 

 

 

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ISSN: 2602-8506

Vol. 6 No. 2, pp. 89 – 106, abril – j= unio 2022

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www= .visionariodigital.org

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                                      NUMPAGES  \* Arabic  \* MERGEFORMAT

 

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