Le délai de recours en reprise des relations contractuelles n’est pas prorogé par l’exercice d’un recours gracieux
Observations sur la décision CE. SSR. 30 mai 2012, Société PRORESTO, n°357151
Dans cette décision, le Conseil d’Etat précise que le recours en reprise des relations contractuelles, créé à l’occasion de la décision Commune de Béziers II (CE. Sect. 21 mars 2011), n’est pas prorogé par l’exercice d’un recours gracieux contre la décision de résiliation. Cette solution se justifie aisément par la nature particulière de ce recours. Néanmoins, elle peut être critiquée, notamment dans le domaine spécifique des conventions d’occupation domaniale.
Le recours en reprise des relations contractuelles, créé par le Conseil d’Etat à l’occasion de la décision Commune de Béziers II (1) a, dès l’origine, attiré l’attention sous l’angle contentieux en raison du point de départ, assez atypique, de son délai d’introduction. En effet, à l’inverse de ce qui prévaut classiquement, le point de départ du délai n’est pas la notification de la décision mais la simple connaissance de cette décision. Dans la décision commentée (2), les juges du Palais-Royal viennent confirmer la particularité du délai de recours, non plus, du point de vue de son point de départ mais de sa computation. La Haute juridiction précise ainsi que le délai pour introduire l’action n’est pas prorogé par l’exercice, dans le délai de recours contentieux, d’un recours administratif.
Cette décision, prise dans le cadre d’un pourvoi en cassation contre une ordonnance de référé, a été rendue dans une affaire introduite par une société de restauration, occupante conventionnelle du domaine public de l’aéroport du Lamentin en Martinique. A la suite de diverses difficultés rencontrées dans l’exécution du contrat d’occupation, la Chambre de Commerce et d’Industrie de la Martinique (la CCIM), gestionnaire du domaine, a informé la société de la résiliation de la convention pour faute. L’intéressée a alors formé un recours gracieux auprès du président de la CCIM. Sans réponse de l’administration, la société a porté sa contestation devant le juge du référé suspension le 14 mars 2011, soit avant l’intervention de la décision Commune de Béziers II, la résiliation des conventions d’occupation faisant partie des exceptions traditionnelles à l’ancien principe selon lequel le juge ne pouvait annuler une mesure d’exécution du contrat (3).
La demande ayant été rejetée, la société s’est pourvue en cassation contre l’ordonnance.
C’est dans ces conditions que le Conseil d’Etat a été amené à s’interroger sur la prorogation ou non du délai de recours contentieux par l’exercice d’un recours gracieux dans le cadre d’un recours type Commune de Béziers II.
I. Une question ancienne dans un contexte renouvelé
Le Conseil d’Etat et les juridictions du fond ont déjà eu, par le passé, l’occasion de se prononcer sur la prorogation du délai de recours contre une décision de résiliation par l’exercice d’un recours administratif. La jurisprudence générale allait alors dans le sens de la prorogation. Toutefois, ces décisions avaient été rendues à propos de recours d’une nature différente de celle du recours en reprise des relations contractuelles (recours en excès de pouvoir ou recours de plein contentieux objectif). Ainsi, à recours nouveau, nouvelle réponse : les juges du Palais-Royal, prenant appui sur la particularité du recours en reprise des relations contractuelles, décident que l’exercice d’un recours gracieux est sans incidence sur la computation des délais de recours contentieux.
A. Une prorogation logique dans le cadre des anciennes exceptions au principe d’interdiction d’annulation des décisions de résiliation
Comme le rappellent les conclusions Cortot-Boucher sur la décision Commune de Béziers II susmentionnée, il existait, par le passé, diverses exceptions à l’interdiction fait au juge d’annuler les décisions de résiliation des contrats. Sous l’empire de ces exceptions, les juridictions administratives avaient pu juger que l’introduction d’un recours gracieux prorogeait le délai de recours contentieux.
Il en allait ainsi du recours type Serfati (4), relatif aux conventions d’occupation.
Certes, le Conseil d’Etat ne s’était jamais prononcé sur ce point mais l’esprit de la décision Serfati et des conclusions Bertrand était particulièrement clair ; en ouvrant ce recours aux cocontractants, l’objectif du juge était de les placer dans la même situation que les occupants détenteurs d’une autorisation unilatérale.
Or, il est acquis que le délai de recours contre l’abrogation ou le retrait d’une autorisation d’occupation unilatérale est prorogé par l’exercice d’un recours gracieux (5). Dès lors, par analogie, il paraissait logique qu’un recours administratif formé contre une décision de résiliation proroge le délai d’introduction du recours type Serfati.
Dans ces conditions, les cours administratives d’appel qui ont eu à se prononcer sur cette question n’ont pas hésité à juger que le délai de recours contentieux était prorogé par l’exercice d’un recours gracieux (6).
En outre, s’agissant d’autres exceptions au principe susmentionné, il était également jugé que le délai de recours contre la résiliation était prorogé par l’exercice d’un recours gracieux. C’est, par exemple, ce qu’a estimé le Conseil d’Etat en matière de résiliation des contrats de travail (7).
Par ailleurs, la jurisprudence relative aux limites apportées au principe de prorogation du délai de recours contentieux par un recours administratif (8) a toujours été restrictive. Seules deux exceptions ont été dégagées : d’une part, lorsqu’il existe une procédure spéciale et, d’autre part, lorsque le législateur a entendu exclure cette prorogation (conclusions Braibant sur la décision de Section du 13 juin 1958, Escault, n° 39402, publiée au Recueil p. 343).
A ces deux exceptions, liées à la volonté du législateur ou du pouvoir réglementaire, s’ajoutent une limite casuistique tirée de la réunion de trois éléments dont tient compte le Conseil d’Etat lorsqu’il doit se prononcer sur l’existence d’une prorogation. Ces éléments sont, tout d’abord, les pouvoirs dont dispose le juge, ensuite, l’association de l’intéressé à la prise de décision et, enfin, la nécessité d’un jugement rapide de l’affaire (9).
Ainsi, les limites au principe de prorogation du délai de recours contentieux sont interprétées restrictivement par le juge administratif dans le but de favoriser le règlement des litiges en amont de son prétoire.
Néanmoins, ces diverses décisions ont été rendues à propos de recours en annulation : recours pour excès de pouvoir ou recours de plein contentieux objectif (comme, par exemple, le recours type Serfati, calqué sur le recours pour excès de pouvoir en matière d’autorisations unilatérales d’occupation).
Or, le recours en reprise des relations contractuelles est d’une nature toute autre puisqu’il s’agit d’un recours de plein contentieux subjectif. En effet, ce recours tend à la reprise des relations contractuelles (donc au respect de l’engagement donné) sans passer par l’annulation d’une quelconque décision. Il s’agit dès lors d’un recours de plein contentieux au sens traditionnel du terme, à l’inverse de ce qu’était, par exemple, le recours type Serfati.
Partant, toutes les solutions évoquées ci-dessus n’étaient pas nécessairement transposables à ce nouveau recours.
C’est d’ailleurs finalement ce qu’a jugé la Haute juridiction.
B. Une prorogation finalement impossible dans le cadre de la jurisprudence Commune de Béziers II
C’est donc dans ce contexte jurisprudentiel que les juges du Palais-Royal ont eu à connaître de l’affaire introduite par la société Proresto et de cette question épineuse.
Le Conseil d’Etat, suivant les conclusions de son rapporteur public, a jugé que le délai de recours contentieux n’était pas prorogé par l’exercice d’un recours administratif dans le cadre d’un recours en reprise des relations contractuelles.
Le rapporteur public avançait, dans ses conclusions, essentiellement deux arguments qui n’ont pas été repris par la décision, à savoir, d’une part, la nature de l’acte en cause : une décision de résiliation qui n’est pas un acte unilatéral mais un acte conventionnel – point largement développé dans les conclusions Cortot-Boucher sur la décision Commune de Béziers II (précitées) – et, d’autre part, l’association du cocontractant à la procédure de décision dans le cadre d’une résiliation-sanction.
La formation de jugement s’est, finalement, fondée sur trois éléments qui vont nous retenir quelques instants.
Le Conseil d’Etat a relevé comme fondement principal les « particularités de ce recours contentieux ».
Ce motif lacunaire ne précise pas de quelles particularités il s’agit. Néanmoins, en se référant aux conclusions Cortot-Boucher sur la décision Commune de Béziers II, il apparait que la particularité en cause n’est autre que l’objet même de ce recours qui – rappelons-le – n’emporte l’annulation d’aucune décision. En effet, les conclusions Cortot-Boucher, suivies par la formation de jugement, préconisaient une reprise des relations contractuelles sans passage par l’annulation de la décision de résiliation. Ainsi, le recours n’est pas introduit contre un acte mais à l’occasion d’un acte, il tend donc simplement à voir reprendre les relations contractuelles.
Dès lors, le recours type Commune de Béziers II étant juridiquement déconnecté de la décision de résiliation, il est logique qu’un recours administratif tendant à l’annulation de cette décision annexe n’ait pas d’influence sur le recours tendant à la simple reprise des relations contractuelles.
Ainsi, le recours type Commune de Béziers II a un objet différent de celui qu’avait le recours type Serfati qui était, en effet, un recours en annulation contre une décision de résiliation. A l’inverse, ici, le recours Commune de Béziers II est un recours qui tend, dans un cadre contractuel, à voir exécuter le contrat auquel l’une des parties a souhaité mettre fin prématurément.
Eu égard à ces éléments, la solution retenue apparaît justifiée. Pourtant la Haute juridiction a retenu deux autres motifs juridiquement plus critiquables que le premier.
II. Une solution sujette à critiques
La solution adoptée par le Conseil d’Etat n’est pas exempte de critiques à deux points de vue. D’une part, les motifs semble-t-il surabondants exposés par les juges du Palais-Royal pour asseoir leur décision n’ont pas la même force juridique que les particularités du recours en reprise des relations contractuelles. De plus, du point de vue de l’opportunité, on peine à voir l’intérêt de cette solution. D’autre part, s’agissant des conventions d’occupation domaniale, cette position conduit à s’interroger sur le bénéfice apporté aux cocontractants par la création du recours type Commune de Béziers II.
A. Des motifs surabondants critiquables en droit et en opportunité
Tout d’abord, en droit, l’on peut remarquer que l’argument tiré des « particularités » du recours en reprise des relations contractuelles se suffisait à lui-même. Cependant, le Conseil d’Etat a développé deux autres fondements qui viennent, à notre sens, affaiblir juridiquement cette solution.
Le Conseil d’Etat a, en effet, également retenu « l’étendue des pouvoirs de pleine juridiction » du juge du contrat et « l’intervention [possible] du juge des référés pour prendre des mesures provisoires ».
Ces arguments appellent deux remarques.
D’une part, la référence à l’étendue des pouvoirs du juge est une référence implicite à la jurisprudence du Conseil d’Etat en matière d’installations classées pour lesquelles le recours gracieux n’interrompt pas les délais de recours contentieux (10). En effet, dans ce domaine, l’étendue des pouvoirs du juge a conduit la Haute juridiction à considérer que le recours gracieux n’avait aucune incidence sur la computation des délais de recours. Néanmoins, selon les termes mêmes du commissaire du gouvernement Guyomar sur la décision Groupement d’irrigation des près de la Forge, cette position « s’inscrit bien dans la logique du « juge administrateur » propre au contentieux des installations classées ». C’est donc la logique même de ce contentieux, et non uniquement les pouvoirs étendus du juge, qui a conduit à cette solution. Le juge étant voué à se substituer à l’administration, il n’est pas nécessaire de retarder son intervention.
Cette logique du juge administrateur est cependant très éloignée, voire antinomique, avec celle du juge du contrat qui n’intervient pas, en principe, sur les mesures d’exécution du contrat et ne se substitue en aucun cas à l’administration cocontractante. Il paraît donc difficile et hasardeux de transposer cet argument juridique au cas d’espèce, sauf à considérer que, désormais, la logique du juge du contrat doit être celle d’un juge administrateur qui se substitue, si besoin est, aux parties.
D’autre part, les pouvoirs de pleine juridiction du juge du contrat, tout comme « l’intervention [possible] du juge des référés pour prendre des mesures provisoires » sont des caractéristiques partagées par d’autres juges qui interviennent sur le contrat, notamment le juge du recours Tropic (11) et le juge du déféré préfectoral relatif à un contrat (12).
Or, ces pouvoirs de pleine juridiction et la possibilité de demander la suspension de l’exécution du contrat ne s’opposent pas nécessairement à la prorogation du délai par l’exercice d’un recours gracieux. C’est, à tout le moins, ce qu’a implicitement mais nécessairement jugé une autre formation du Conseil d’Etat à propos du déféré d’une décision d’approbation d’un contrat (13).
Dès lors, l’on comprend difficilement pourquoi ces éléments mal assurés ont été utilisés par la Haute juridiction alors que l’argument premier, tiré de la nature du recours, suffisait pour asseoir en droit la solution retenue.
Par ailleurs, en opportunité, on peine à voir l’intérêt de la position adoptée le 30 mai 2012 par les juges du Palais-Royal.
Il paraitrait, en effet, utile que dans l’hypothèse de la résiliation d’un contrat le cocontractant soit mis à même de discuter avec l’administration avant de se tourner vers le juge. Par ailleurs, si le contradictoire est présent dans le cas des résiliations-sanctions, il faut, avec le commissaire du gouvernement Rigaud dans ses conclusions sous la décision Centre médico-pédagogique de Beaulieu (D. 1965, p. 84), relever qu’ : « une chose est de débattre contradictoirement de certains éléments, avant qu’une décision administrative soit prise ; autre chose est, une fois la décision adoptée, de la contester par la voie gracieuse ».
De plus, la distinction entre un recours formé contre une décision et un recours formé à l’occasion d’une décision, si elle présente une réalité, juridique n’en demeure pas moins largement artificielle, notamment pour les requérants qui comprendront sans doute difficilement la subtilité.
Ainsi, si la justification de cette solution d’un point de vue juridique ne fait guère de doute, elle n’en reste pas moins étonnante en opportunité.
Outre ces réserves d’ordre général sur le choix opéré par le Conseil d’Etat dans cette décision, des remarques plus spécifiques au contentieux des conventions d’occupation domaniale peuvent être faites.
B. Une position contestable dans le cadre des conventions d’occupation domaniale
Les conventions d’occupation, comme évoqué supra, ont, dès la décision Serfati, fait l’objet d’une exception au principe d’interdiction du recours contre les décisions de résiliation. Cette exception était justifiée par la similarité entre occupations conventionnelles et occupations unilatérales ainsi que par la nécessité corrélative d’assurer une certaine égalité entre ces occupants, bénéficiant de titres de nature différente, mais placés dans des situations similaires.
Dans ce contexte, le recours type Serfati a été calqué sur le recours en excès de pouvoir contre les décisions de retrait ou d’abrogation de l’autorisation d’occupation.
Or, la solution adoptée ici par la Haute juridiction introduit une distinction marquée entre le régime contentieux des autorisations d’occupation contractuelles et des autorisations unilatérales.
Dans un cas, la décision de retrait devra être notifiée en bonne et due forme et pourra faire l’objet d’un recours gracieux prorogeant le délai de recours contentieux tandis que, dans l’autre, la décision de résiliation devra seulement être portée à la connaissance de l’occupant qui ne pourra la contester devant le juge que dans le délai de deux mois.
Les deux types de recours suivront donc des chemins différents bien que la distinction entre autorisations unilatérales et conventionnelles paraisse quelque peu artificielle dans la mesure où, si l’objet des recours est différent, leur but est le même. C’est d’ailleurs pour cette raison que les cours administratives d’appel qui ont eu à se prononcer à l’occasion de conventions d’occupation dans le cadre des recours Serfati (14) puis Commune de Béziers II (15) ont estimé que le délai de recours contre la résiliation était prorogé par l’exercice d’un recours gracieux.
Partant la décision commentée vient mettre fin à l’unité procédurale voulue par la décision Serfati entre le recours contre le retrait ou l’abrogation de l’autorisation d’occupation et le recours contre la résiliation de la convention d’occupation.
Au-delà de cette question, la procédure très stricte du recours en reprise des relations contractuelles conduit à s’interroger sur l’intérêt de la décision Commune de Béziers II en matière d’occupation domaniale.
En effet, cette jurisprudence, qui ouvre un recours en reprise des relations contractuelles, est très généralement analysée comme une avancée pour les cocontractants (et l’est réellement dans de nombreux domaines). Néanmoins, s’agissant plus particulièrement des conventions d’occupation, un recours existait auparavant et ses règles procédurales étaient, semble-t-il, plus favorables au cocontractant de l’administration que celles du nouveau recours.
Dès lors, dans le domaine spécifique des conventions d’occupation, cette solution n’est pas de nature à simplifier les règles procédurales qui devront donc être mises en œuvre avec beaucoup d’attention par les praticiens.
Septembre 2012
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(1) CE. Sect. 21 mars 2011, n° 304806, publiée au recueil Lebon ; RFDA 2011 p. 507, concl. E. Cortot-Boucher ; AJDA 2011 p. 670, chron. A. Lallet ; D. 2011. 954, obs. M.-C. de Montecler ; RDI 2011. 270, obs. S. Braconnier ; AJCT 2011. 291, obs. J.-D. Dreyfus).
(2) CE. SSR. 30 mai 2012, Société PRORESTO, n° 357151, publiée au recueil Lebon ; AJDA 2012 p. 1593, chron. A. Dizier.
(3) CE. Sect. 13 juillet 1968, Société Etablissements Serfati, n° 73161, publiée au recueil Lebon p. 436 ; AJDA 1968 p. 582, concl. Bertrand ; ibid. p. 574, chron. J.-L. Dewost et R. Denoix de Saint-Marc ; RD publ. 1969. 123, note M. Waline.
(4) CE. Sect. 13 juillet 1968, Société Etablissements Serfati, n° 73161, publiée au recueil Lebon p. 436 ; AJDA 1968 p. 582, concl. Bertrand ; ibid. p. 574, chron. J.-L. Dewost et R. Denoix de Saint-Marc ; RD publ. 1969. 123, note M. Waline.
(5) CE. SSR. 6 octobre 1997, Mme VIRGILI et autres, n° 172904 ; CE. SSR. 9 novembre 1994, M. Tigrini, n° 140726, mentionnée aux tables.
(6) Voir, au sein d’une jurisprudence constante des cours : CAA Paris, 30 décembre 2011, SA Total Raffinage Marketing, n° 11PA03174 ; CAA Marseille, 3 juillet 2008, Société dépannage location mécanique corse, n° 06MA01925.
(7) Voir, par exemple, au sein d’une jurisprudence constante : CE. SRR. 9 décembre 1988, n° 63302, mentionnée aux tables ; CE. SSJS. 23 février 2009, n° 311170.
(8) Posé dès la décision Bansais du 13 avril 1881 (Lebon p. 432).
(9) Voir, sur ces différents points, les conclusions Guyomar sous la décision de Section du 21 décembre 2007, Groupement d’irrigation des près de la Forge, n° 280195 ainsi que les G.A.C.A., Dalloz, 2009, 2ème édition p. 38 et s.
(10) CE. Sect. 21 décembre 2007, Groupement d’irrigation des près de la Forge, précitée.
(11) CE. Ass. 16 juillet 2007, Société Tropic Travaux Signalisation, n° 291545, publiée au recueil Lebon p. 360 avec les concl. D. Casas ; AJDA 2007 p. 1497, chron. S. Braconnier.
(12) CE. SSR. 23 décembre 2011, Ministre de l’intérieur, n° 348647, publiée au recueil Lebon.
(13) CE. SSR. 9 mai 2012, SDOM de l’Aude, n° 355665, publiée au recueil Lebon.
(14) Voir, au sein d’une jurisprudence constante des cours, les arrêts précités : CAA Paris, 30 décembre 2011, SA Total Raffinage Marketing, n° 11PA03174 ; CAA Marseille, 3 juillet 2008, Société dépannage location mécanique corse, n° 06MA01925.
(15) CAA Douai, 23 décembre 2011, Société GDF Suez énergie services, n° 10DA00763.
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Вот некоторые рекомендации: Определение целей и стратегии: Начните с определения целей, которые вы хотите достичь
с помощью отдела продаж.
Разработайте стратегию, которая будет направлена на достижение этих
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Создание организационной структуры: Решите,
какую структуру будет иметь ваш отдел продаж.
Она может быть функциональной, географической или комбинированной.
Уделите внимание ролям и обязанностям сотрудников.
Найм и обучение персонала: Подберите квалифицированных
сотрудников с опытом в продажах или предоставьте им обучение.
Эффективные продавцы играют ключевую роль в успехе отдела.
Выбор и внедрение CRM-системы: Внедрение Customer
Relationship Management (CRM) системы поможет отслеживать взаимодействие с
клиентами, управлять лидами и анализировать
данные.
Разработка процессов продаж:
Определите процессы продаж от начала до конца, включая генерацию лидов, ведение переговоров и заключение сделок.
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Важно помнить, что построение отдела продаж – это непрерывный
процесс, и его развитие требует постоянного внимания и адаптации к изменяющимся условиям на рынке.
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на сегодняшний день весьма востребованной услугой является отдел продаж
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Эта услуга включает в себя ряд преимуществ:
Профессиональный опыт: Специализированные
агентства и консультанты,
такие как "Немкович Маркетинг Студио", имеют богатый опыт в области
маркетинга и продаж, что позволяет им предоставлять высококачественные услуги.
Сокращение рисков: Компании,
заказывая услуги отдела продаж под ключ, могут снизить риски и заботы, связанные с управлением отделом продаж, и обеспечить
более надежное выполнение поставленных
задач.
Фокус на ядерных компетенциях:
Заказчики могут сконцентрироваться на своих основных компетенциях, оставив маркетинг и продажи профессионалам.
Экономия времени и ресурсов:
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Использование современных инструментов:
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продаж.
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не имеют внутренних ресурсов или
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Пришло время сделать подбор менеджеров по продажам
Этот этап играет критическую роль в формировании
успешного отдела продаж, и сотрудничество с опытными консультантами, такими как "Немкович Маркетинг", может быть особенно полезным.
Важно учесть несколько важных шагов:
Определение критериев отбора: Вместе
с "Немкович Маркетинг" определите
критерии, которые соответствуют вашим
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Разработка вакансий: Создайте подробные описания вакансий и требования для кандидатов.
Сотрудничество с опытными консультантами,
такими как "Немкович Маркетинг",
поможет вам сформулировать
эффективные вакансии.
Поиск и отбор кандидатов: "Немкович Маркетинг" может помочь вам провести поиск кандидатов через различные источники, включая рекрутинговые агентства и онлайн-платформы.
Они могут также провести собеседования и анализировать резюме, чтобы найти лучших кандидатов.
Обучение и интеграция: После
выбора менеджеров, обеспечьте им подходящее обучение и интеграцию
в вашу компанию. Обучение и адаптация новых сотрудников помогут
им начать эффективную работу как можно скорее.
Мониторинг и развитие: Сотрудничайте с "Немкович Маркетинг" для мониторинга производительности менеджеров по продажам и их
дальнейшего профессионального развития.
Подбор компетентных менеджеров по продажам
с поддержкой опытных консультантов, таких как "Немкович Маркетинг", поможет вам создать сильный
и результативный отдел продаж.
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4. Веб-разработка: Наша команда разработчиков создает современные и функциональные веб-сайты, которые не только красивы,
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