Biznes w Polsce

Blokada firm nielegalna? Fala pozwów może zalać sądy

W obecnym momencie uwaga wszystkich skupiona jest na zadbaniu o bezpieczeństwo siebie i swoich najbliższych. Dramatem wielu przedsiębiorców stał się z dnia na dzień brak przychodów ich zamkniętych firm. Już dziś wielu prawników bije na alarm i zwraca uwagą na wątpliwości dotyczące podstawy prawnej ograniczeń wprowadzanych celem walki z pandemią . Część wątpliwości dotyczy przepisów, które doprowadziły do zamknięcia firm. 

Czym jest klęska żywiołowa?

Konstytucyjny stan nadzwyczajny wprowadza się wtedy, kiedy zachodzą trudności w funkcjonowaniu państwa. W zależności od ich rodzaju wprowadza się jeden z trzech stanów, które wyliczone są w art. 228 konstytucji. Są to stan wojenny, stan wyjątkowy lub stan klęski żywiołowej. Czy mamy dziś w Polsce stan klęski żywiołowej? Wbrew twierdzeniom części polityków, odpowiedź na to pytanie może być dość oczywista nawet dla kogoś niebędącego prawnikiem. Zgodnie z ustawą z 2002 roku stan klęski żywiołowej ma miejsce, gdy dochodzi do katastrofy naturalnej lub awarii technicznej. Dodatkowo:

  1. ich skutki zagrażają życiu lub zdrowiu dużej liczby osób, mieniu w wielkich rozmiarach albo środowisku na znacznych obszarach, 
  2. pomoc i ochrona mogą być skutecznie podjęte tylko przy zastosowaniu nadzwyczajnych środków

Sama ustawa z 2002 roku wprost za katastrofę naturalną uznaje się masowe występowanie chorób roślin lub zwierząt albo chorób zakaźnych ludzi. Nie ulega zatem żadnej wątpliwości, że pandemia koronawirusa spełnia wszelkie przesłanki stanu klęski żywiołowej.  

To właśnie wyłącznie w czasie konstytucyjnego stanu klęski żywiołowej mogą mieć miejsce ograniczenia wolności i praw człowieka i obywatela polegające min. na zawieszeniu działalności określonych przedsiębiorców; nakazie lub zakazie prowadzenia działalności gospodarczej określonego rodzaju (mówi o tym art. 21 ust. 1 pkt 1,2 ustawy). Ustawa określa też zasady wypłaty odszkodowań zamkniętym firmom. 

Wątpliwa podstawa „lockdownu”

Cały problem z obecną sytuacją polega na tym, że ograniczenia w działaniu firm wprowadzono bez wprowadzania stanu klęski żywiołowej. Podstawą prawną ograniczeń stała się zamiast tego ustawa z 2008 roku o zapobieganiu oraz zwalczaniu zakażeń i chorób zakaźnych u ludzi. Jej zakres częściowo pokrywa się z zakresem ustawy o klęsce żywiołowej. W przypadku stanu epidemii pozwala ona na „czasowe ograniczenie określonych zakresów działalności przedsiębiorców” (art. 46b).

Realizacją tego przepisu było rozporządzenie Rady Ministrów z 31 marca 2020 roku, które wprowadziło „czasowe ograniczenie” min. usług hotelarskich, fryzjerskich, targów czy sportowych czy rekreacyjnych. Dalej w rozporządzeniu wskazano, że co do części branż „czasowe” ograniczenia polegają na „całkowitym zakazie prowadzenia działalności” (!). W konsekwencji firmy z tych branż zostały zamknięte na drodze rozporządzenia.

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Czy to legalne? Zgonie z art. 22 Konstytucji RP, ograniczenie wolności działalności gospodarczej jest dopuszczalne tylko w drodze ustawy i tylko ze względu na ważny interes publiczny. Wyraźnie widać, że ustawa z 2002 r. o stanie klęski żywiołowej pozawala szeroko na „zakazanie prowadzenia działalności”, a ustawa z 2008 jedynie na „czasowe ograniczenie określonych zakresów”. Na pierwszy rzut oka ustawa z 2008 roku nie może być wykorzystana do całkowitego zamknięcia firm. Podobne wątpliwości zgłasza Rzecznik Praw Obywatelskich. Jego uwagi dotyczą ograniczeń w poruszaniu po kraju rozporządzeniem. 

Czy czeka nas lawina odszkodowań?

Co to oznacza dla przedsiębiorców? Nie wszyscy wiedzą, że nawet bez wprowadzenia trybu odszkodowań wedle stanu nadzwyczajnego, przedsiębiorcy mają przepisy pozwalające pozwać Skarb Państwa za zamknięcie im firm. Zgodnie z art. 417 kodeksu cywilnego za szkodę wyrządzoną przez niezgodne z prawem działanie lub zaniechanie przy wykonywaniu władzy publicznej ponosi odpowiedzialność Skarb Państwa lub jednostka samorządu terytorialnego lub inna osoba prawna wykonująca tę władzę z mocy prawa. Artykuł 417 KC stanowi realizację na płaszczyźnie ustawowej wyrażonej w art. 77 ust. 1 Konstytucji RP zasady odpowiedzialności państwa.

Czy zamknięcie firm w trybie ustawy z 2008 roku i bez wprowadzenia stanu klęski żywiołowej spełnia powyższe wymagania niezgodności z prawem? Takie stanowisko wyraża wielu prawników. Jest to o tyle istotne, że w sytuacji przyjęcia, że niewprowadzenie stanu klęski żywiołowej pomimo ziszczenia się wszelkich przesłanek było niezgodne z prawem, to przedsiębiorcy mogą dochodzić swoich roszczeń od Skarbu Państwa właśnie na mocy art. 417 k.c. (wedle zasad z art. 417(1) kc) Na odszkodowanie może składać się zarówno strata, jak i utracone korzyści. Jest to znacząco więcej, niż zapewnia firmom tarcza antykryzysowa. 

Słychać też głosy, że część korporacji swoje roszczenia wysunie przed sądami międzynarodowymi. Niestety w dobie pandemii łatwo zapomnieć, że od stycznia trwa wojna o polskie sądy. Część z sędziów odsunęła się od orzekania. Odwołanie rozpraw przez koronawirusa dodatkowo przedłuży trwające latami procesy. W Polsce firmy będą musiały zatem przygotować się na lata walki o odszkodowania. Barierą dla firm nie powinny być koszty procesu. Jeśli bowiem sytuacja majątkowa przedsiębiorcy jest trudna, może on ubiegać się o zwolnienie od kosztów sądowych.

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