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Sistemas algorítmicos de decisão administrativa : natureza e regimes jurídicos
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A crescente mobilização de sistemas algorítmicos no exercício da função administrativa suscita questões dogmáticas de primeira grandeza quanto à sua qualificação jurídica e ao adequado enquadramento normativo, contribuindo sobejamente para isso o facto de o Código do Procedimento Administrativo (CPA) ter sido concebido num horizonte prévio à disseminação das tecnologias de inteligência artificial. A presente dissertação tem por objeto, no contexto do ordenamento jurídico português, os sistemas algorítmicos utilizados na formação de atos administrativos, abrangendo tanto os de cariz determinístico (SD) como os não determinísticos (SND), maxime os subsumíveis à categoria normativa de sistemas de inteligência artificial na aceção do Regulamento (UE) 2024/1689. Propõe-se o estudo responder a duas questões encadeadas: a primeira, atinente à natureza jurídica destes sistemas; a segunda, em função da resposta àquela, relativa à adequação dos regimes jurídicos convocáveis. A abordagem é eminentemente jurídico-dogmática, mobilizando doutrina, legislação e jurisprudência, pátrias e estrangeiras, complementadas, na estrita medida do indispensável, por contributos técnico-informáticos que permitam apreender, com correção, a realidade a classificar. Afastadas, num primeiro momento, as qualificações como ato administrativo e como ente decisor, sustenta-se, mediante interpretação atualista do artigo 135.º do CPA, que os sistemas algorítmicos em apreço podem ser subsumidos, verificados certos pressupostos, na categoria de regulamento administrativo externo. Para o efeito, e em especial quanto a SND, concebe-se uma lógica de critério compósito, segundo a qual a normatividade relevante se distribui por múltiplos componentes da arquitetura sistémica. A partir desta construção, escrutina-se a adequação dos regimes convocáveis em matéria de legalidade e legitimação, procedimento de formação, transparência e publicidade, inderrogabilidade singular e supervisão humana, e controlo judicial de legalidade, com especial atenção à articulação com o Regulamento da Inteligência Artificial. Conclui-se pela desadequação parcial do quadro normativo vigente, mormente perante os SND, sendo necessária uma reforma legislativa que clarifique a natureza jurídica destes instrumentos e delineie uma disciplina própria, equilibrada entre a inovação tecnológica e as exigências próprias de um Estado de Direito democrático
The growing deployment of algorithmic systems in the exercise of the administrative function raises dogmatic questions of the first order as to their legal qualification and appropriate normative framework, a difficulty to which the fact that the Portuguese Administrative Procedure Code (CPA) was conceived well before the dissemination of artificial intelligence technologies contributes in ample measure. The present dissertation takes as its object, in the context of the Portuguese legal order, the algorithmic systems employed in the formation of administrative acts, encompassing both those of a deterministic nature (DS) and non-deterministic ones (NDS), notably those subsumable within the normative category of artificial intelligence systems as defined by Regulation (EU) 2024/1689. The study proposes to address two linked questions: the first, concerning the legal nature of such systems; the second, in light of the answer to the former, relating to the adequacy of the legal regimes thereby called into play. The approach is eminently juridical-dogmatic, mobilising domestic and foreign doctrine, legislation and case law, supplemented, strictly to the extent indispensable, by computer science contributions that allow for a correct apprehension of the reality to be classified. Having first set aside the qualifications as administrative act and as decision-making body, it is argued, by way of an actualist interpretation of Article 135 of the CPA, that the algorithmic systems under analysis may, upon verification of certain requirements, be subsumed within the category of external administrative regulation. To that end, and particularly as regards NDS, a composite criterion rationale is devised, pursuant to which the relevant normativity is distributed across multiple components of the systemic architecture. Building upon this construction, the adequacy of the applicable regimes is then scrutinised in matters of legality and legitimation, rule-making procedure, transparency and publicity, single inderogability and human oversight, and judicial review of legality, with particular attention to their articulation with the AI Act. It is concluded that the current normative framework is partially inadequate, especially as regards NDS, rendering necessary a legislative reform that clarifies the legal nature of these instruments and delineates a specific discipline, balanced between technological innovation and the demands inherent to a democratic rule-of-law State.
The growing deployment of algorithmic systems in the exercise of the administrative function raises dogmatic questions of the first order as to their legal qualification and appropriate normative framework, a difficulty to which the fact that the Portuguese Administrative Procedure Code (CPA) was conceived well before the dissemination of artificial intelligence technologies contributes in ample measure. The present dissertation takes as its object, in the context of the Portuguese legal order, the algorithmic systems employed in the formation of administrative acts, encompassing both those of a deterministic nature (DS) and non-deterministic ones (NDS), notably those subsumable within the normative category of artificial intelligence systems as defined by Regulation (EU) 2024/1689. The study proposes to address two linked questions: the first, concerning the legal nature of such systems; the second, in light of the answer to the former, relating to the adequacy of the legal regimes thereby called into play. The approach is eminently juridical-dogmatic, mobilising domestic and foreign doctrine, legislation and case law, supplemented, strictly to the extent indispensable, by computer science contributions that allow for a correct apprehension of the reality to be classified. Having first set aside the qualifications as administrative act and as decision-making body, it is argued, by way of an actualist interpretation of Article 135 of the CPA, that the algorithmic systems under analysis may, upon verification of certain requirements, be subsumed within the category of external administrative regulation. To that end, and particularly as regards NDS, a composite criterion rationale is devised, pursuant to which the relevant normativity is distributed across multiple components of the systemic architecture. Building upon this construction, the adequacy of the applicable regimes is then scrutinised in matters of legality and legitimation, rule-making procedure, transparency and publicity, single inderogability and human oversight, and judicial review of legality, with particular attention to their articulation with the AI Act. It is concluded that the current normative framework is partially inadequate, especially as regards NDS, rendering necessary a legislative reform that clarifies the legal nature of these instruments and delineates a specific discipline, balanced between technological innovation and the demands inherent to a democratic rule-of-law State.
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Sistemas algorítmicos de decisão administrativa Regulamento administrativo Artigo 135.º do CPA Regulamento (UE) 2024/1689 (AI Act) Inteligência artificial na Administração Pública Critério compósito Transparência algorítmica Supervisão humana Controlo judicial de legalidade Algorithmic administrative decision-making systems Administrative regulation Article 135 of the CPA Regulation (EU) 2024/1689 (AI Act) Artificial intelligence in Public Administration Composite criterion Algorithmic transparency Human oversight Judicial review of legality
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