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1

Aspekty kompetencyjne kierowania bezpieczeństwem narodowym w warunkach stanu wyjątkowego

Kitler W.

Zeszyty Naukowe AON

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2014

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nr 4(97)

34-67

PL

Stan wyjątkowy jest jednym z trzech stanów nadzwyczajnych określonych w Konstytucji z 1997 r., a jednocześnie jednym z dwóch, obok stanu wojennego, które wymagają udziału dwóch organów w ich ogłaszaniu. Ten przejaw demokratyzacji ustroju państwa, ochrony przez uzurpowaniem sobie nadmiaru władzy przez jeden organ, a także próba zmuszenia egzekutywy do współpracy, nie jest najlepszym rozwiązaniem z punktu widzenia sprawności rządzenia państwem, szczególnie w takich okolicznościach, gdy wystąpią przesłanki wprowadzenia stanu nadzwyczajnego. Bez wątpienia było to konieczne po 1992 roku, w okresie przejściowym, lecz obecnie udział dwóch organów władzy publicznej (po kolei: rady ministrów, prezydenta) w proklamowaniu trzeciego (sejm) w uznaniu, lub nie, postanowienia prezydenta o wprowadzeniu stanu wyjątkowego (wręcz szczególnie tego stanu) może łączyć się z ostrą rywalizacją i, jak słusznie się zauważa, paraliżem decyzyjnym w razie wystąpienia potrzeby nagłej reakcji . Zważywszy na przesłanki, trudno się oprzeć wrażeniu, że instytucja stanu wyjątkowego i procedura jego wprowadzania sięga czasów już dość odległych, zaś przesłanki spowodowane działaniami terrorystycznymi oraz działaniami w cyberprzestrzeni to już inne, całkiem nowego typu warunki. W doktrynie słusznie się przyjmuje, że przesłanki wprowadzenia stanu wyjątkowego dotyczą bezpieczeństwa wewnętrznego, jednak nie można się zgodzić z dość powszechnym poglądem, że przy wprowadzaniu stanu wyjątkowego chodzi o ochronę przed zagrożeniami wewnętrznymi . Nie można, ponieważ zagrożenie wewnętrzne powinno mieć swoje źródło, i skutek, wewnątrz państwa, a - niestety - przyczyny zagrożenia konstytucyjnego ustroju pań-stwa, bezpieczeństwa obywateli lub porządku publicznego, jak choćby szantaż polityczny, działania o charakterze terrorystycznym lub działania w cyberprzestrzeni mogą mieć charakter zarówno wewnętrzny, jak i zewnętrzny. Ustawodawca co prawda uznał, że działania o charakterze terrorystycznym lub działania w cyberprzestrzeni mogą się wiązać z pojawieniem się przesłanki do wprowadzenia stanu wojennego, a więc w konsekwencji zewnętrznego zagrożenia państwa, jednak należy wziąć pod uwagę fakt, że nie każde zagrożenie zewnętrzne wiąże się z wprowadzeniem stanu wojennego. Musi ono przede wszystkim spełniać wymóg posiadania cechy zagrożenia militarnego, a dokładnie rzecz ujmując - wiązać się ze wszystkimi formami agresji określonymi w prawie międzynarodowym . Celem niniejszego artykułu jest wskazanie i omówienie aspektów kompetencyjnych, kierowania bezpieczeństwem narodowym w warunkach stanu wyjątkowego.

EN

A state of emergency is one of the three states defined in the Constitution of 1997 and, at the same time, one of the two states, apart from the state of war, which require two governing bodies to announce them. This manifestation of the democratic political system, protection against a single authority usurping excessive power, as well as an attempt to force the executive to cooperate, are not the best solutions in terms of the efficiency of state governance, especially under the circumstances in which there are presumptions to introduce a state of emergency. Without doubt, this was necessary after 1992 during the transitional period but, nowadays, the contribution of two public authorities (in turn: the Council of Ministers and the President) to proclaim, and the third one (the Parliament) to recognise or not, the President’s resolution on the introduction of a state of emergency (especially this state) can be related to acute rivalry and, as rightly observed, to decision-making paralysis in the case of the need for an emergency response . Considering the presumptions, it is hard to resist the impression that the institution of a state of emergency and the procedure for its introduction date back to the old times, while the presumptions due to terrorist activities and actions in cyberspace make different conditions of a totally new type. The doctrine rightly assumes that the presumptions for the introduction of a state of emergency are related to internal security; however, one cannot agree with the quite common view that the introduction of a state of emergency is about protection against internal threats . This is due to the fact that an internal threat should have its source and result within the state and, unfortunately, the reasons for a threat to the constitutional political system, to the safety of citizens and public order, such as political blackmail, terrorist activities or cyberspace actions can be of both an internal and external nature. Although the legislator decided that terrorist activities and cyberspace actions can be related to the appearance of a presumption to introduce a state of war and, thus, consequently an external threat to the state, it should be borne in mind that not every external threat is linked to the introduction of a state of war. First of all, it must match the characteristics of a military threat and, more accurately, it must be related to all forms of aggression defined in international law. The aim of this article is to indicate and discuss the remit of national security management during a state of emergency.

2

Organizacja bezpieczeństwa narodowego RP w kontekście ochrony ładu wewnętrznego w państwie

Kitler W.

Zeszyty Naukowe AON

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2013

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nr 4(93)

230-248

EN

The issue of the national security of Poland organisation, including its management, requires the analysis of problems related to the internal order protection in the country. The need, among others, results from the lack of clear formulated concepts and determined extent of internal security, public safety, constitutional security, security of citizens as well as public order in the legitimate sphere and in the security theory. As a consequence, the stance concerning the scope of their application has not been stabilised yet. Additionally, in the title of this article, one more term –‘internal order’ has been introduced. The conceptual categories mentioned above often have strong epistemological and ontological relations, and therefore, determining their identity and distinctiveness requires the adoption of a certain questioning attitude on the basis of the existing concepts in Polish legal order or in the theory of the problem.

3

Prawo bezpieczeństwa narodowego w systemie prawa

Kitler W.

Zeszyty Naukowe AON

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2011

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nr 2(83)

69-90

EN

The role of law in the state is indisputable; due to the norms established by appropriate bodies the rules of behavior (action) are defined in all areas of the functioning of the state, bodies of government, market zone, third sector (non-profit organizations) and particular citizens. Inseparable mutual relationship between the state and law makes law play a significant role in the organization of the state activities and entities functioning on its territory, also in the national security aspect. The character and range of the norms of law condition the effectiveness of the organization of the state, thus organizational and functional effectiveness of particular organizational units set up by the state and acting on its behalf to attain security goals. Despite the fact that national and international law is concerned with security, there is no theoretical background directly connected with security matters that could cause a deep reflection on legal aspects of these problems. The author of the article tries to reflect on legal aspects of security from the security practitioner’s and theoretician’s point of view for whom normative measures and legal norms make a foundation of a “good” organization of the state and society in relation to the performing the basic mission, i.e. providing free of disturbances - safe conditions of life and national development.

4

Potrzeby obronne : problemy definicyjne oraz podstawy określania ich rodzaju i zakresu w świetle obowiązujących uregulowań prawnych

Kitler W.

Zeszyty Naukowe AON

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2008

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nr 4(73)

13-28

EN

Many terms and expressions are used in national defence practice which are not defined in a uniform or synthetic way, or even are not defined at all. “Defence needs”, the notion commonly used in numerous synonymous versions, belongs to this group. The author of the article attempted to define and discuss the scope of the defence needs of the state, the natural consequence of which makes up complex organizational, financial, legislative and training undertakings aiming at maintaining an effective defence system of the state and readiness to perform missions that it faces. The results of research including the legal and planning problems in the area of defence allow adopting the following defence needs definition: it is a part of needs in the field of national security relating to expected states of human re-sources, material, energy, financial, informational and service capabilities necessary to maintain the efficiency of the defence system of the state and performing defence tasks in peacetime, in conditions of national security threats and wartime.

5

Samoobrona powszechna w obronie narodowej RP

Kitler W.

Zeszyty Naukowe AON

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2000

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nr 1(38)

11-29

EN

In the light of Polish law regulations, common self-defence is a component of civil defence in the area of population protection and rescuing the injured, provided that civil defence has an inter-disciplinary dimension and is conducted not only by civil defence forces. The activities of the population’s common defence include only wartime and the warthreatening period, activities of a getting ready character refer only to peacetime. This state does not reflect the reality as current threats to national security concern not only wartime events but also many others, both of conflict and non-conflict character. National defence - that is the whole means and forces of the state, their mutual relations and processes (procedures and mechanisms), influencing their environment in order to prevent and counteract all kinds of threats aiming at the national interest, threats against social values which could lead to break off social, economic and political ties. Common self-defence has its place in national defence. It is a form of national defence, which consists in spontaneous (permanent and temporary) population’s organisation in their place of residence in order to counteract life and health hazards, threats to their possession, to the environment resulting from human actions and nature forces - against people and the nature. Common self-defence includes non-governmental activities participated by nongovernmental institutions, churches and individual citizens who in time of threat undertake individual or collective preventive actions.

6

Aspekty wojskowego wsparcia władz cywilnych w ochronie ludności

Kitler W.

Zeszyty Naukowe AON

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1999

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nr 2(35)

86-106

EN

The problems of military support for civilian authorities is not new in Polish reality, both in legal and organisational aspects. The only novelty is to use this notion to define phenomena which consist in managing selective military forces to help civilian authorities in national security endeavours which have nothing to do with the defence of the country against a military aggression. Unfortunately, there is no unity of opinions, operational and legislative solutions in perceiving civil defence which is identified with non-military defence by the author. Civil defence as a non-military equivalent of military defence has many essential roles to play in national defence. Its basic tasks are as follows: population protection (in the meaning of civil defence), security and public protection, national reserves creating and protection, safeguarding the government bodies and other public institutions functioning, border protection, support for the armed forces and defence education. The participation of the armed forces in relief work for civilian population, called population protection, is another crucial issue. Thus it is an urgent task to define rules (principles) and procedures to use the armed forces, and also financial and soldiers’ insurance and necessary equipment principles. Also the role of military administration bodies should be defined, in particular the chiefs of voyvodship military staffs, which, according to the author, need to be a key element in the troops command system on the territorial level and also in the system of military threats protection, preparation, reaction and reconstruction.

7

Europejskie standardy obrony cywilnej i ochrony ludności

Kitler W.

Wiedza Obronna

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1999

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nr 1

73--88

8

Zarządzanie kryzysami na szczeblu wojewódzkim : stan obecny i perspektywy

Kitler W.

Zeszyty Naukowe AON

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1998

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nr 2(31)

25-40

EN

The political system reforms in Poland are related to providing responsibilities and competencies in crisis management for local structures (state and local councils bodies, entrepreneurs and non-state organisations). The general idea of the transformations is to decentralise the state life maintaining the priority for the highest value which the state and population security is. Hitherto existing law in the state has been related to splitting responsibilities from real competencies of a voivode - the government representative in a province. The idea of crisis management consisting in the continuity of power and responsibility requires charging the voivode with true powers to ensure common security on the area of the province. As a result of changes there appears an opportunity to introduce such a legal, organisational and functional state which will enable the voivode to conduct civil defence tasks fully, the basic aim of crisis reaction, especially in the situation of non- military threats, more and more often endangering the civilian population in peacetime.

9

Reforma ustrojowa państwa a zarządzanie kryzysami

Kitler W.

Zeszyty Naukowe AON

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1998

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nr 1(30)

7-27

EN

Among the main problems in the security and defence area, espesially in the consequence of recent tragic floods, the subject of crisis reaction and its essential part i.e. crisis management has the utmost importance. Usually, during the turning point of history, the states have been organising themselves in a new different way. We witness a similar process in Poland, initiated a few years ago as a result of a great social and political turn on the Polish and European scale. An exceptional opportunity has appeared to give a chance to a social activity on the lowest level: commune, municipality and voyvodship. There is finally a possibility to fill in the loop created after the introduction the institutions of the states of emergency, introduced due to governmental decisions, usually too late in relation to the expectancy of the society. The political system reform gives a great opportunity to reform a state, also in the defence area. It is understood as creating conditions to counteract all threats while using all assests of the society and state. The reform in the defence aspect is also organising military administration in such a way so it would suit territorially civilian structures, mainly new voyvodships. The political system reform has to take into consideration the need of the uniform and coherent system of crisis management functioning. This system, which is in fact a version of the state management has to be based on efficient procedures of behaviuor and clearly constructed law regulating the division of competencies and responsibilities of all state subjects (citizen, businessman and public authorities bodies).

10

Obrona cywilna w Polsce i na świecie : dylematy i rozwiązania

Kitler W.

Zeszyty Naukowe AON

|

1998

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nr 4(33)

45-61

EN

A few-year-long works on constructing a population protection system have not fulfilled our expectations. The flood in July 1997 evoked a heated discussion on the civil defence future, unfortunately without any solutions in this matter. The legal status in the Republic of Poland causes that both the humanitarian actions called „civil defence” and Civil Defence organisational structures are mainly connected with the functioning of the state in wartime. This situation provokes disputes of competencies in all spheres of the prevention actions organisation and rescue works in emergency situations of a non military character. The civil defence notion embraces not only humanitarian missions for the population, goods and environment, but also many other endeavours, of a security character, realised in a civilian sector. They also include keeping order and public safety, material and moral support for the (own and friendly) armed forces, creating and keeping state reserves, supporting the government bodies functioning and others. Averting the threat of a war break out does not mean the resignation and withdrawal from the civil defence idea. The time has come to embody this idea in peacetime, giving up the hitherto existing war favouring thinking and acting. Only such an approach will enable to take use of the whole nation’s potential to counteract non-military threats and keeping the state of readiness to fight the most tragic of threats - war.