Fachbereich für Rechtswissenschaften 280/1 Projekt

Wissenschaftstag 2007 1

Fachbereich für

Rechtswissenschaften280/1

Projekt

Legal Aspects of land reform in the Republic of Serbia

Mai-November 2006


Legal Aspects of land reform in the Republic of Serbia

Auftraggeber:

4 Komponenten: Draft Law on Denationalisation of Urban Construction

Land (including Option Paper and Action Plan) Draft Construction Law (including Option Paper and Action

Plan) Elaboration of a Model for improved working procedures Draft Spatial and Urban Planning Law (including Option

Paper and Action Plan)


Methode

Component-Leader leitet Arbeitgruppen Internationale Experten Serbische Experten

Mehrtägige Workshops, insbes. In Belgrad und Wien, mit serbischen inter-ministeriellen bzw. akademischen Arbeitsgruppen (5, 15-20 Personen)

Interviews mit „externen“ serbischen ExpertInnen

Internationale long-term und short-term Experts Study trips nach Berlin, Wien Output:

Einigung in Arbeitsgruppen auf Modelle


Ergebnisse – Stand des Projektes

Wissenschaftliche Option-Papers (Kommentierte) Gesetzesentwürfe Implementation Action Plan

Prozess Zur Entscheidungsfindung, Bewusstseinbildung


Legal Reform of Urban Construction Land in Serbia

Teil 2: Ein Gesetz zur Privatisierung und Restitution von Grundeigentum

Univ. Ass. Mag. Karin Hiltgartner, E.MA


De-Nationalisierung in Serbien

Ausgangslage: Alles städtische Land gilt als Bauland Eigentumsmonopol von städtischem Land zu Gunsten der

Republik „Pacht-Rechte“ für Privatpersonen

Unterschiedliche Ausformungen

Ansprüche enteigneter Liegenschaftseigentümer auf Restitution



Zielsetzungen: Übereinstimmung mit völkerrechtlichen (EMRK) und

europarechtlichen Ansprüchen Superficies solo cedit Abschaffung von sozialem Eigentum

Interessensausgleich zwischen aktuellen Pächtern und früheren Eigentümern der Grundstücke

Sonderfall: Eigentumswohnungen Beschränkung der Kosten für Entschädigungszahlungen



Arbeitsweise: 13 Workshops, 2 Studienreisen Eruierung der serbischen Rechtslage + Praxis Vergleich der internationalen rechtlichen Anforderungen an

Privatisierung und Restitution Gegenüberstellung vergleichbarer Länder

Ehemalige sozialistische Staaten Nachfolgestaaten Ex-Jugoslawien

Theoretische Erarbeitung von Privatisierungsmodellen Legal Esperanto of De-Nationalisation

Auswahl und Adaptierung an serbische Rahmenbedingungen





Gegenüberstellung vergleichbarer Länder

Country Restitution principle Compensation Conversion Application process

Albania 1 2 yes, if value increased by 50%

yes

Croatia 2 1 yes yes

Macedonia 1, if no third party obtained rights

2 yes yes

Montenegro 1, if no third party obtained rights

2 yes yes

Slovenia 1, if no third party obtained rights

2 yes yes


Grund-Modelle zur De-Nationalisierung

Gegenwartsbezogen Privatisierung: Verkauf des verstaatlichten Eigentums Konversion: Umwandlung der „Pacht-Rechte“ in Eigentum

Vergangenheitsbezogen Restitution: Rückgabe an Alt-Eigentümer Entschädigung: an Alteigentümer




Vorgeschlagenes Modell

Restitution als Grundprinzip Ausnahmen:

Neues Eigentumsrecht rechtmäßig begründet (Apartments) Wiedervereinigung von Eigentum an Bauwerk und Boden (inkl.

Abschlagszahlung in Varianten)

Rechtmäßiges Pacht-Recht (Verpflichtung zur Legalisierung)

Entschädigung für Alt-Eigentümer


Kommentierter Gesetzesentwurf

Framework Draft:Law on Denationalization of Urban Construction Land

Note: The following Framework Draft Law on Denationalization reflects statutory language based on the models for denationalization developed and agreed upon with the Working Group. It does not claim to be an exhaustive Draft Law as further elaborations on specific details will be required. The present Framework Draft Law is intended to serve as a facilitating basis for such discussions.

General ProvisionsArticle 1. (Subject Matter)

This Law shall regulate the denationalization of urban construction land, as defined by law, which has been seized on the basis of, as a result of, or in connection with enforcement of the legal regulations on nationalization, sequestration, confiscation, expropriation and other enactments with the same effect, that had been promulgated and enforced since 9 March 1945, without full and prompt compensation, and which, at the time of entry into force of this Law is owned by the state or social property.

The formulation “[…] seized on the basis of, as a result of, or in connection with enforcement of the legal regulations […]” is intended to cover all acts of seizure by state authorities, whether directly based on the regulations mentioned in Article 5 or seizures undertaken in connection with nationalization. However, more specific language could be introduced to further clarify the scope.

Article 2. (General Principles & Obligations)In seeking to rectify the consequences of nationalization and as a measure to re-institute private ownership in accordance with international human rights standards and the need to strengthen legal certainty (rule of law) in property relations as well as strengthening sustainable economic development, denationalization shall be based on the following principles: ……………..


Verfahrens-Prinzipien Errichtung einer Agentur für De-Nationalisierung Individuelle Antragstellung Unterstützung der Beweissuche ex officio durch

Verwaltungsbehörden Veräußerungseinschränkungen während laufender

Verfahren Berücksichtigung der Bedürfnisse benachteiligter

Gruppen


Implementation Action Plan

Objective 2 Nr. Measure Time frame Institution(s)

responsible for implementation

Adoption of De-Nationalization Law and National Action Plan

2.1. Presentation of comparative experiences and best practices (study trips to Germany and Austria)

Short-term Working group component 1 CLC / GTZ

2.2. Development of a mathematical model for evaluating the costs of De-Nationalization

Short-term Working group component 1 and Implementing partner

2.3. Evaluation of costs of De-Nationalization on the basis of data provided through applications for registration of property seized and mathematical model developed

Medium-term Working group component 1 and related experts

2.4. Finalization of the Law on the basis of the models reflected in the Framework Draft

Medium-term Working group component 1

2.5. Submission of the Serbian Draft to the Parliament Medium-term Line Ministries

2.6. Development of a draft National Action Plan as the basis for government policies on De-Nationalization and means / terms of collaboration between different stakeholders

Medium-term Working group component 1

2.7. Adoption of a National Action Plan for government policies on De-Nationalization and means of collaboration between different sectors

Long-term Government of the Republic of Serbia


Component 4: Reform of land use planning and zoning provisions

Component-Leader: Arthur Kanonier

Österreichische MitarbieterInnen: Karim Gies (Universität Salzburg) Thomas Dillinger (TU Wien) Gerhard Schimak (TU Wien)

Organisation: 12 Workshops in Belgrad


Key aspects of the reform

Actual planning system for spatial planning activitiesClearly arranged structure of land use planning and a framework for spatial development activities

- Regulations and land use activities should take into account EU-regulations and goals (e.g. sustainable development)

- All building activities should be in conformity with land use planning and zoning provisions

- Disconnection of land use planning and ownership

Spatial planning programs as legal basis for inexpensive and short building permits


Goals for a reform

Improved acceptance of legally binding planning regulations- Understandable and transparent decision making process - Fair process with possibilities to participate

Hierarchical Planning System- Limited number of plans on national, regional and local level- Subordination of planning activities on lower levels (top down

approach)- Intensive participation of subordinated affected persons and

institutions (bottom up approach)

Legal and transparent land use framework for land owners

Specified goals and principles for land use planning


Key aspects of the reform Updating and renewal of goals and principles in spatial planning Supervisory authority’s approval of local spatial plans Programs instead of plans National planning without preliminary activities on municipal

level Strengthening of regional planning Simplification of local spatial plans - reform / reorganization of

land use planning Definition of (individual) utilisation categories General criterias for zoning Inclusion of greenland Separation of land use and questions of ownership Clear legal effects of building land (e.g duty of the municipalities to

develop building land with infrastructure, building obligation)


National Planning/Regional Planning

Name / Type

General Goal Scope of validity

Content Competence

Spatial development programme for Serbia (“Strategy”)

Long (middle) term objectives of spatial planning and development

Territory of the Republic of Serbia

Goals and measures for spatial planning and development, axes, and functions

National Assembly

Development programme for special subjects

Long, middle, short term objectives for special subjects

Whole territory or parts of the territory of the Republic of Serbia

Goals and measures for special subjects (economy, traffic, technical and social infrastructure, …)

Government

Development programme for regions

Long (middle) term objectives for regional spatial planning and development

or/and

for special subjects

Whole territory of a region or autonomous province

Goals and measures for regional spatial planning and development

Goals and measures for special subjects

“Regional entity” or autonomous province

Verification through the Ministry in charge for Planning


Municipal PlanningName / Type Goal Scope of validity Content Competence

Development programme for Municipalities

Long (middle) term objectives and measures of spatial planning and development

Territory of the Municipality

Goals and measures for the municipal development,

zones of regional importance (e.g. industry, commerce), areas of raw material securing, boundary of settlement areas, green areas …

Municipal Assembly

Verification through the Ministry in charge for Planning

Urban Development programme (for cities/towns/ settlements)

Long (middle) term objectives spatial planning and development

Territory or of the city/town/settlement

Goals and measures for the urban development

Land Use Plan

Goals and measures subject areas (economy, traffic, technical and social infrastructure, Green areas and belts, …)

Municipal Assembly

Verification through a “Regional entity” or the Ministry in charge for Planning

Urbanregulatory plan (for cities/towns/ settlements)

Rules for arrangement and construction of buildings

Whole territory or parts of the city/town/settlement

Building regulations(Specification of land-use)

Municipal Assembly

Notification to a “Regional entity” or the Ministry in charge for Planning


Planning Procedure

From a legal point of view („rule of law“) it is basically required to structure the procedure of the planning process clearly.

The distribution of tasks between the authorities, planners and other participants (private parties, other authorities and interest groups) must be determined legally as far as possible.

As spatial planning is carried out by different planning authorities on different levels (national, regional, local) even partially with different goals (general, sectoral), planning procedures must fulfil horizontal as well as vertical functions in cooperation and coordination.


IMPLEMENTATION ACTION PLAN

Public awareness (M 1 -12) Capacity building (M 13 – 21) Institution building (M 22 – 29) Financial affairs (M 30 – 36) Legal affairs (M 37 – 53) Gender aspects (M 54 – 60) International affairs (M 61 – 64)



Abschließende Bemerkungen

Beachtliches mediales Echo in Serbien Neuwahlen in Serbien Anfangs 2007 Bislang keine Regierungsneubildung Kosovo Herausforderndes Projekt:

Viele bisherigen gescheiterten Versuche Weltbank

Starker Zeitdruck Bedeutende Unterschiede in den Rechtssystemen

Documents

Fachbereich für Rechtswissenschaften 280/1 Projekt