Marek Walacik, Sabina Źróbek
The procedures of land acquisition
for public roads construction :
similarities and differences on the
example of selected countries
Acta Scientiarum Polonorum. Administratio Locorum 9/4, 129-142
Acta Sci. Pol., Administratio Locorum 9(4) 2010,129-142
THE PROCEDURES OF LAND ACQUISITION
FOR PUBLIC ROADS CONSTRUCTION - SIMILARITIES
AND DIFFERENCES ON THE EXAMPLE OF SELECTED
COUNTRIES
Marek Walacik, Sabina Zrobek
University o f Warmia and Mazury in Olsztyn (Poland)
Abstract. The activities connected with public roads construction in Poland has
increased significantly during last years. Unprecedented scale of these investments,
resulted from the country’s accession to the European Union and co-hosting the
European Football Championships in 2012. The different activities planned and
executed last years revealed many weak points of law and constrained legislative
changes. In this paper the basic assumptions and fundamental rules concerning legal
procedures of land acquisition for public roads construction has been described.
At first a brief information on what a term “public road” means and how the roads
has been classified according to Polish legislation was given. The article shows the
similarities and differences between the procedures of land acquisition according
to the Polish legal acts especially in terms of the entities involved in them or
administrative acts causing deprivation or restriction of rights. It also compares
solutions adopted in Poland to the German and Norwegian ones. The conclusions
are as follows: the example of Poland shows a real diversity of land acquisition
procedures. There are procedures, that omit the negotiation stage, there are also ones
that cannot be accomplished without it, foreign procedures presented in the paper
are similar to the Polish Real Estate Act’s one, in terms of the entities involved
in the procedures one can notice bigger disparity.
Key words: acquisition of land, legal procedures , public roads
INTRODUCTION
I n P o l a n d , l ik e in m a n y c o u n t r i e s , p u b l i c a u t h o r i t i e s e i t h e r o n n a t i o n a l o r l o c a l l e v e l a r e r e s p o n s i b l e f o r d i f f e r e n t k i n d o f o b j e c t a n d i n f r a s t r u c t u r e c o n s t r u c t i o n . T h e c o n s t r u c t i o n o f r o a d s is t h e o n e a m o n g o t h e r s i m p o r t a n t a im o f t h e s e e n t i t i e s
Adres do korespondencji - Corresponding author: Marek Walacik, Katedra Gospodarki
Nieruchomościami i Rozwoju Regionalnego, Uniwersytet Warmińsko-Mazurski w Olsztynie,
ul. Romana Prawocheńskiego 15, 10-724 Olsztyn, e-mail: marek.walacik@uwm.edu.pl
130
A c c o r d i n g t o P u b l i c R o a d A c t t h e t e r m “ r o a d ” m e a n s : “ b u i l d i n g f a c i l i t i e s , t o g e t h e r w i t h r o a d e n g i n e e r i n g , e q u i p m e n t a n d i n s t a l l a t i o n s r e p r e s e n t i n g t e c h n i c a l a n d u t i l i t a r i a n i n t e g r i t y , d e s i g n e d to c a r r y t r a f f i c , l o c a t e d i n t h e r o a d l a n e ” [ A c t 1, 1 9 8 5 ] . T h e b a s i c s t a g e o f c l a s s i f i c a t i o n o f p u b l i c r o a d s i n t o c a t e g o r i e s is b a s e d o n t h e c r i t e r i a o f r o a d s ’ f u n c t i o n i n t h e r o a d n e t w o r k . M o r e d e t a i l e d c l a s s i f i c a t i o n s in to c l a s s e s d e p e n d o n b o t h t h e a c c e s s c r i t e r i a a n d t h e t e c h n i c a l a n d f u n c t i o n a l f e a t u r e s s h o w s t a b l e 1.Table 1. Road classification in Poland
Tabela 1. Klasyfikacja dróg w Polsce
Road categories Kategorie dróg
Road classes Klasy dróg National road - Drogi krajowe Highway* - Autostrada*
Provincial road - Drogi wojewódzkie Motorway* - Droga ekspresowa*
County road - Drogi powiatowe Upper main road - Drogi główne ruchu przyspieszonego Communal road - Drogi gminne Main road - Drogi główne
Summary road - Drogi zbiorcze * Roads with limited availability Local road - Drogi lokalne * Drogi z ograniczonym dostępem Driveway - Drogi dojazdowe
Source: Authors’ own study on the basis of Public Road Act... [Act 1, 1985], The Minister
of Transport... [Regulation 1, 1999]
Źródło: Opracowanie własne na podstawie Public Road Act... [Act 1, 1985], The Minister
of Transport... [Regulation 1, 1999]
A l t h o u g h b o t h c l a s s i f i c a t i o n s s h o w n a b o v e a r e r e g u l a t e d i n s e p a r a t e l e g a l a c ts t h e c a t e g o r i e s o f r o a d s a n d t h e r o a d c l a s s e s a r e s t r o n g l y c o r r e l a t e d , w h i c h m e a n s t h a t p a r t i c u l a r r o a d c a t e g o r i e s c a n h a v e o n l y p a r t i c u l a r r o a d c l a s s e s . F o r e x a m p l e : n a t i o n a l r o a d s c a n h a v e o n l y h i g h w a y , m o t o r w a y , u p p e r m a i n r o a d a n d e x c e p t i o n a l l y m a i n r o a d c l a s s , w h e r e a s c o m m u n a l r o a d s c a n h a v e o n l y l o c a l r o a d , d r i v e w a y a n d e x c e p t i o n a l l y s u m m a r y r o a d c la s s . C l a s s i f i c a t i o n o f r o a d s i n t o r o a d c a t e g o r i e s is v e r y i m p o r t a n t i n t e r m s o f l e g a l p r o c e d u r e s o f l a n d a c q u i s i t i o n f o r r o a d b u i l d i n g i n v e s t m e n t s b e c a u s e i t d e t e r m i n e s t h e k i n d o f a d m i n i s t r a t i v e e n t i t i e s i n v o l v e d i n t h e p r o c e d u r e s a n d t h e k i n d s o f n e c e s s a r y a d m i n i s t r a t i v e a c t s [ D ą b e k 2 0 0 7 ] . D e t a i l s c o n n e c t e d w i t h t h a t w i l l b e i n t r o d u c e d i n t h e f u r t h e r p a r t o f t h e a r t i c l e . A t t h i s s t a g e o n e s h o u l d b e g i v e n a n e x p l a n a t i o n o n w h a t c o n d i t i o n s h a v e to b e f u l f i l l e d i n o r d e r t o g i v e r o a d p a r t i c u l a r c a t e g o r y a n d h o w i t is m a d e . O n e o f t h e c o n d i t i o n s is t h a t t h e r o a d h a s t o b e g i v e n p a r t i c u l a r s t a t u s . D i f f e r e n t a u t h o r i t i e s a s s i g n t h e s t a t u s o f d i f f e r e n t r o a d c a t e g o r i e s . I n t e r m s o f n a t i o n a l r o a d s M i n i s t r y o f I n f r a s t r u c t u r e c o n f i r m s r o a d s ’ s t a t u s i n m i n i s t r y ’s d i r e c t i v e . P r o v i n c i a l r o a d s ’ s t a t u s is c o n f i r m e d b y p r o v i n c e a s s e m b l y i n i t s ’ r e s o l u t i o n . C o u n t y c o u n c i l f o r c o u n t y r o a d s a n d m u n i c i p a l c o u n c i l f o r c o m m u n a l r o a d s a s s i g n t h e i r s t a t u s e s i n t h e i r r e s o l u t i o n s . I n o r d e r t o c l a s s i f y r o a d to e a c h c a t e g o r y , p a r t i c u l a r a u t h o r i t i e s h a v e to m e e t a n o t h e r c o n d i t i o n - c o n n e c t e d w i t h p r o p e r t y r i g h t s . A c c o r d i n g t o th e P u b l i c R o a d A c t t h e l a n d t h a t t h e r o a d is l o c a t e d o n h a s to b e l o n g t o p a r t i c u l a r a u t h o r i t i e s . T h e l a n d u n d e r c o m m u n a l r o a d s h a s to b e l o n g t o t h e c o m m u n e , u n d e r131
c o u n t y r o a d s to t h e c o u n t y e tc . I t is w o r t h n o t i n g t h a t t h e p u b l i c a c t r e g a r d i n g p u b l i c r o a d c l a s s i f i c a t i o n d o e s n o t h a v e e n f r a n c h i s i n g c h a r a c t e r . I t c o m m a n d s a u t h o r i t i e s to a c q u i r e l a n d u n d e r r o a d s . E v e r y p r o c e s s o f r o a d c o n s t r u c t i o n h a s i t s ’ b e g i n n i n g i n t h e p l a n n i n g s ta g e . D e t e r m i n a t i o n o f p u b l i c i n v e s t m e n t s l o c a t i o n s o r l a n d u s e s , i n g e n e r a l , t a k e s p l a c e i n l o c a l l a n d u s e ( z o n i n g ) p l a n s . I n c a s e s w h e n t h e r e a r e n o l o c a l l a n d u s e p l a n s a ll t h e e l e m e n t s a r e d e t e r m i n e d i n d e c i s i o n s o n t h e l o c a t i o n o f p u b l i c i n v e s t m e n t s . L a n d u s e p l a n s a r e p r e p a r e d o n t h e m u n i c i p a l l e v e l , n e v e r t h e l e s s t h e y h a v e to i n c l u d e a l l t h e u p p e r p r o v i s i o n s ( p r o v i n c i a l , c o u n t y , n a t i o n a l ) . A s f a r a s i s s u i n g d e c i s i o n o n t h e l o c a t i o n o f p u b l i c i n v e s t m e n t is c o n c e r n e d , t h e e n t i t y r e s p o n s i b l e f o r i t d e p e n d s o n t h e s p a t i a l i m p o r t a n c e . D e c i s i o n s c o n c e r n i n g p u b l i c i n v e s t m e n t s o f n a t i o n a l a n d p r o v i n c i a l i m p o r t a n c e a r e i s s u e d b y m a y o r i n c o n s u l t a t i o n w i t h m a r s h a l . D e c i s i o n s c o n c e r n i n g p u b l i c i n v e s t m e n t s o f c o u n t y a n d m u n i c i p a l i m p o r t a n c e a r e i s s u e d b y m a y o r . H a v i n g d e t e r m i n e d a l l m o s t i m p o r t a n t i s s u e s i n t h e p l a n n i n g t o o l s m e n t i o n e d a b o v e r o a d a u t h o r i t i e s a r e c a p a b l e o f t a k i n g p a r t i c u l a r s t e p s f o r r o a d f o r m a t i o n i n t h e s u r v e y i n g s e n s e : - p r o p e r t y d i v i s i o n , - l a n d c o n s o l i d a t i o n a n d d i v is io n . T h e f i r s t w a y i s t h e m o s t c o m m o n w a y o f r o a d r e a l i z a t i o n . L a n d c o n s o l i d a t i o n a n d d i v i s i o n i n c o m p a r i s o n to l a n d d i v i s i o n f i n d s u s e r a r e l y o n P o l i s h g r o u n d . B e c a u s e o f t h e f a c t t h a t r o a d r e a l i z a t i o n m e t h o d s a r e c l o s e l y r e l a t e d t o th e p r o c e d u r e s o f l a n d a c q u i s i t i o n ( t h e r e a r e p r o c e d u r e s t h a t c a u s e b o t h r o a d f o r m a t i o n a n d l a n d a c q u i s i t i o n ) f u r t h e r i n f o r m a t i o n o n t h a t s u b j e c t w i l l b e c o m p l e m e n t e d i n t h e n e x t p a r t o f t h e p a p e r d e v o t e d t o l e g a l p r o c e d u r e s o f l a n d a c q u i s i t i o n .LEGAL ASPECTS OF LAND ACQUISITION FO R PUBLIC ROADS
S p e a k i n g a b o u t l a n d a c q u i s i t i o n f o r r o a d s c o n s t r u c t i o n o n e t h i n g n e e d s c l a r i f i c a t i o n . T h e d e f i n i t i o n o f r o a d i n t r o d u c e d i n t h e f o r m e r p a r t o f t h e a r t i c l e h a d a r a t h e r g e n e r a l m e a n i n g , n e v e r t h e l e s s d e s c r i b i n g a l l t h e e l e m e n t s t h a t c r e a t e r o a d a n d m e n t i o n i n g t h a t r o a d i s a “ b u i l d i n g f a c i l i t y ( . . . ) l o c a t e d i n t h e r o a d l a n e ” P u b l i c R o a d A c t ... [ A c t 1, 1 9 8 5 ] i t i n d i c a t e d t h e s c o p e o f n e c e s s a r y l a n d a c q u i s i t i o n d u r i n g p u b l i c r o a d i n v e s t m e n t s . I n o r d e r to u n d e r s t a n d it o n e h a v e to u n d e r s t a n d t h e m e a n i n g o f t h e r o a d l a n e , b e c a u s e i t s ’ d e f i n i t i o n i s m u c h m o r e c l o s e r to th e d e f i n i t i o n o f a p r o p e r t y . A c c o r d i n g t o P u b l i c R o a d A c t r o a d l a n e i s a n “ i s o l a t e d w i t h d e m a r c a t i n g l i n e s l a n d t o g e t h e r w i t h t h e s p a c e a b o v e a n d b e l o w t h e s u r f a c e , w h e r e t h e y a r e l o c a t e d , t h e r o a d c o n s t r u c t i o n w o r k s , t e c h n i c a l e q u i p m e n t a s s o c i a t e d w i t h t h e o p e r a t i o n , p r e s e r v a t i o n a n d m a i n t e n a n c e o f t r a f f i c , a s w e l l a s e q u i p m e n t r e l a t e d t o t h e m a n a g e m e n t n e e d s ” P u b l i c R o a d A c t ... [ A c t 1, 1 9 8 5 ] . S o t h e s t a t e m e n t “ l a n d a c q u i s i t i o n f o r p u b l i c r o a d s ” is “ l a n d a c q u i s i t i o n f o r p u b l i c r o a d l a n e s ” . L e g a l p r o c e d u r e s o f l a n d a c q u i s i t i o n f o r p u b l i c r o a d l a n e s d i f f e r e n t i a t e , d e p e n d i n g o n t h e r o a d c a t e g o r y a n d t h e a i m o f i n v e s t m e n t . T h e m o s t i m p o r t a n t l e g a l a c t s r e g u l a t i n g t h e m a r e :
132
- T h e R e a l E s t a t e M a n a g e m e n t A c t d a t e d 2 1 A u g u s t 1 9 9 7 , - T h e d e t a i l e d p r i n c i p l e s o f p r e p a r i n g a n d e x e c u t i n g p u b l i c r o a d s c o n s t r u c t i o n i n v e s t m e n t p r o j e c t s A c t d a t e d 1 0 A p r i l 2 0 0 3 , - T h e A c t o n p r e p a r a t i o n o f t h e f i n a l t o u r n a m e n t o f t h e U E F A E u r o p e a n F o o t b a l l C h a m p i o n s h i p s E U R O 2 0 1 2 d a t e d 7 S e p t e m b e r 2 0 0 7 . A l l t h e p r o c e d u r e s m e n t i o n e d b e l o w a r e b a s e d o n t h r e e w a y s o f p r o p e r t y l e g a l s t a t u s r e g u l a t i o n : - c i v i l a g r e e m e n t , - e x p r o p r i a t i o n , - t a k i n g p r o p e r t y o v e r b y v i r t u e o f l a w .PROCEDURE OF LAND ACQUISITION ON THE BASIS OF THE REAL
ESTATE M ANAGEMENT ACT
T h e p l a n n i n g s t a g e o f t h e w h o l e p r o c e d u r e r e g u l a t e d b y t h e R e a l E s t a t e A c t s t a r t s w i t h e i t h e r l a n d u s e p l a n o r w i t h a d e c i s i o n o n p u b l i c r o a d i n v e s t m e n t l o c a t i o n . A s s o o n a s t h e p l a n n i n g i s s u e s a r e s e t t l e d t h e p r o c e d u r e o f l a n d a c q u i s i t i o n c a n s ta r t. I n i t i a t i o n o f e x p r o p r i a t i o n m u s t b e p r e c e d e d b y t h e n e g o t i a t i o n s f o r t h e a c q u i s i t i o n b y a g r e e m e n t , w h i c h t a k e p l a c e b e t w e e n t h e g o v e r n o r e x e c u t i n g t h e t a s k o f p u b l i c a d m i n i s t r a t i o n , a n d t h e p e o p l e e n t i t l e d to d i f f e r e n t p r o p e r t y r i g h t s ( o w n e r s h i p , p e r p e t u a l u s u f r u c t , l i m i t e d r i g h t s ) . I n t h e c a s e o f e x p r o p r i a t i o n o f p r o p e r t y e x e c u t e d a t t h e r e q u e s t o f t h e l o c a l a u t h o r i t i e s , e x e c u t i v e b o d i e s c a r r y o u t t h e i r n e g o t i a t i o n s . I n i t i a t i o n o f p r o c e e d i n g s f o r t h e e x p r o p r i a t i o n o f t h e T r e a s u r y s h a l l b e e x o f f i c i o , a n d f o r l o c a l g o v e r n m e n t - a t t h e r e q u e s t o f i t s e x e c u t i v e b o d y . I n i t i a t i o n o f t h e o f f i c e m a y a l s o b e d u e to a c o m p l a i n t l o d g e d b y t h e p e r s o n w h o i n t e n d s t o p u r s u e t h e o b j e c t i v e o f t h e p u b l i c . I n i t i a t i o n e x p r o p r i a t i o n t a k e s p l a c e a f t e r t h e e x p i r y o f t w o m o n t h s t o c o n c l u d e a n a g r e e m e n t , d e s i g n a t e d i n w r i t i n g t o t h e o w n e r , u s u f r u c t u s e r , a s w e l l a s a p e r s o n w h o i s e n t i t l e d to l i m i t e d r i g h t s s e t u p o n t h e p r o p e r t y . T h is p e r i o d is c o u n t e d f r o m t h e d a t e o f c o m p l e t i o n o f n e g o t i a t i o n s w h i c h i s s e t b y t h e g o v e r n o r [ Ź r ó b e k a n d W a l a c i k 2 0 0 8 ] T h e i n i t i a t i o n o f e x p r o p r i a t i o n p r o c e e d i n g s t a k e p l a c e o n d e l i v e r y o f t h e n o t i c e to t h e p a r t i e s o r t h e d a t e s p e c i f i e d i n t h e n o t i c e o f i n i t i a t i o n , d i s p l a y e d a t t h e o f f i c e o f t h e c o u n t y d i s t r i c t , a f t e r t h e e x p i r y o f t w o m o n t h s . A f t e r t h e i n i t i a t i o n o f e x p r o p r i a t i o n p r o c e e d i n g s g o v e r n o r , c a r r i e s o u t a n a d m i n i s t r a t i v e s u it. T h e n o t i c e o n i s s u i n g d e c i s i o n i s g i v e n b y a n a n n o u n c e m e n t o r i n o t h e r f o r m c u s t o m a r y a c c e p t e d i n a g i v e n l o c a l it y . T h e d e c i s i o n o n p r o p e r t y e x p r o p r i a t i o n i n c l u d e s : - d e t e r m i n a t i o n o f e x p r o p r i a t i o n p u b l i c p u r p o s e , - p r o p e r t y i d e n t i f i c a t i o n a c c o r d i n g t o t h e l a n d r e g i s t e r , a n d b y t h e r e a l e s t a t e c a d a s t r e , - d e t e r m i n a t i o n o f t h e r i g h t s t o b e e x p r o p r i a t e d , - p r o p e r t i e s ’ o w n e r o r u s e r i d e n t i f i c a t i o n , - i d e n t i f i c a t i o n o f t h e p e r s o n e n t i t l e d to l i m i t e d r i g h t s s e t u p o n p r o p e r t y , - o b l i g a t i o n t o p r o v i d e r e p l a c e m e n t p r e m i s e s , - c o m p e n s a t i o n d e t e r m i n a t i o n .
133
The transition of ownership to the State Treasury or to the local government unit
takes as soon as the real estate expropriation decision becomes final. Expropriated
property, pending its use for the purpose for which the expropriation took place,
renders the previous lease owner at his request.
The final decision on expropriation of real estate is the basis for entry in the
land register. Entry is made at the request of governor or executive authority,
if the property was expropriated for the benefit of this unit. Renting or leasing o f the
expropriated property expires three months from the date on w hich the expropriation
decision becomes final. The procedure of land acquisition according to The Real
Estate M anagement Act dated 21 August 1997 was shown on the figure 1.
starost executive body starosta, notice (indirect, direct) zawiadomienie (pośrednio, bezpośrednio)
O
administrative suit rozprawa administracyjnaO
/ \ final decision decyzja ostateczna \ / expropriation application wniosek o wywłaszczenieFig. 1. Land acquisition procedure according to Real estate management act
Rys. 1. Procedura nabywania gruntów według Ustawy o gospodarce nieruchomościami
Source: Authors’ own study on the basis of The Real Estate [Act 2, 1997]
Źródło: Opracowanie własne na podstawie The Real Estate [Act 2, 1997]
LAND ACQUISITION ON THE BASIS OF THE DETAILED PRINCIPLES
OF PREPARING AND EXECUTING PUBLIC ROADS CONSTRUCTION
INVESTM ENT PRO JECTS ACT
In terms of the following procedure so called planning stage has a different
shape. It is combined with the preparation and implementation stage, which means
that particular decision that is issued here not only deals with the planning issues but
also property ownership and building permit matters.
Governor in relation to national and provincial roads, or the starost for the
county and local roads issue the decision on road investment implementation at
the request of the competent manager of the road (within 90 days). As soon as the
administrative suit starts governor or starost sends a notice on that to all the parties
involved in the process (property owners, perpetual usufruct users etc). Moreover
134
h e g i v e s a n o t i c e o n t h a t i n p r o v i n c i a l o f f i c e s , m u n i c i p a l o f f i c e s , w e b s i t e s a n d l o c a l p r e s s . F r o m t h e d a t e o f t h e n o t i c e p r o p e r t y o w n e d b y t h e S t a te T r e a s u r y o r l o c a l g o v e r n m e n t u n i t s , s u b j e c t to d e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n c a n n o t b e t r a d e d . I f t h e p r o p e r t y is s o l d i n c o n t r a v e n t i o n t o t h e p r o h i b i t i o n t h e a c t i s v o i d . T h e s c o p e o f d e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n i n m u c h m o r e b r o a d e r t h a n th e d e c i s i o n o n i n v e s t m e n t l o c a t i o n . T h e d e c i s i o n c o n t a i n s ( t h e m o s t i m p o r t a n t e l e m e n t s i n t e r m s o f t h e a r t i c l e ’s s u b j e c t h a s b e e n u n d e r l i n e d ) : - r e q u i r e m e n t s f o r r o a d l i n k s w i t h o t h e r p u b l i c r o a d s , i n c l u d i n g t h e i r c a t e g o r y , - l a n d d e m a r c a t i o n lin e s , - c o n d i t i o n s r e s u l t i n g f r o m t h e n e e d f o r e n v i r o n m e n t a l p r o t e c t i o n , p r o t e c t i o n o f c u l t u r a l m o n u m e n t s a n d t h e c o n t e m p o r a r y n e e d s o f d e f e n s e a n d s t a te , - r e q u i r e m e n t s f o r t h e p r o t e c t i o n o f t h e l e g i t i m a t e i n t e r e s t s o f t h i r d p a r t i e s , -ap p ro v al of th e division of p ro p e rty
,-
designation of p ro p e rtie s o r th e ir p a rts according to re al estate cad astre,
w hich will becom e th e p ro p e rty of th e T re a su ry o r th e local a u th o ritie s
, -ap p ro v al of a co nstruction p ro je c t
, - a l t e r n a t i v e a r r a n g e m e n t s i f n e c e s s a r y . G o v e r n o r i n r e l a t i o n t o n a t i o n a l a n d p r o v i n c i a l r o a d s a n d t h e s t a r o s t f o r th e c o u n t y a n d l o c a l r o a d s d e l i v e r t h e d e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n a n d i n f o r m a b o u t i t i n t h e s a m e w a y a s i n t h e c a s e o f i n i t i a t i o n t h e p r o c e s s o f i s s u i n g d e c i s i o n . T h e n o t i c e a b o u t i s s u i n g d e c i s i o n c o n t a i n s i n f o r m a t i o n a b o u t t h e p l a c e w h e r e p a r t i e s c a n r e a d it. T h e d e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n c a n b e a p p e a l e d to a h i g h e r d e g r e e o f a u t h o r i t y , w h i c h is: - g o v e r n o r i n t e r m s d e c i s i o n s i s s u e d b y t h e s t a r o s t - t h e M i n i s t e r o f I n f r a s t r u c t u r e i n t e r m s o f d e c i s i o n s i s s u e d b y t h e g o v e r n o r . A p p e a l s f r o m t h e d e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n a r e d e a l t w i t h w i t h i n 3 0 d a y s a n d a c o m p l a i n t to a n a d m i n i s t r a t i v e c o u r t w i t h i n t w o m o n th s . I n p r o c e e d i n g s b e f o r e a n a p p e a l a n d b e f o r e t h e a d m i n i s t r a t i v e c o u r t d e c i s i o n c a n n o t b e w a i v e d i n w h o l e o r c o n c l u d e t h a t i t is i n v a l i d w h e n t h e d e f e c t c o n c e r n s o n l y p a r t o f t h e d e c i s i o n o n t h e s e c t i o n o f r o a d , r e a l e s t a t e , p r o p e r t y . D e c i s i o n o n r o a d i n v e s t m e n t i m p l e m e n t a t i o n a p p r o v e s p r o p e r t y d i v i s i o n s o t h e l a n d d e m a r c a t i o n l i n e s e s t a b l i s h e d i n i t b e c o m e p r o p e r t y d i v i s i o n l i n e s . F i n a l d e c i s i o n c o n s t i t u t e s b a s i s f o r c h a n g e s i n l a n d r e g i s t e r s a n d c a d a s t r e . P r o p e r t i e s a r e t a k e n o v e r b y v i r t u e o f l a w f o r - t h e s t a t e t r e a s u r y i n t e r m s o f n a t i o n a l c a t e g o r y r o a d s , - p a r t i c u l a r l o c a l a u t h o r i t i e s ( p r o v i n c e , c o u n t y , c o m m u n e ) d e p e n d i n g o n t h e r o a d c a t e g o r y ( p r o v i n c i a l , c o u n t y , c o m m u n a l ) , a s s o o n a s t h e d e c i s i o n b e c o m e s f i n a l . I f o n t h e p r o p e r t i e s ’ o w n e r s h i p o r p e r p e t u a l u s u f r u c t r i g h t l i m i t e d p r o p e r t y r i g h t s a r e s e t u p , t h e y a l l e x p i r e t h e n . I f o n t h e p r o p e r t y o w n e d b y t h e S t a te T r e a s u r y o r l o c a l g o v e r n m e n t u n i t p e r p e t u a l u s u f r u c t r i g h t w a s s e t u p i t a ls o e x p i r e s w h e n t h e d e c i s i o n b e c o m e s f i n a l . T h e p r o c e d u r e o f l a n d a c q u i s i t i o n a c c o r d i n g t o t h e d e t a i l e d p r i n c i p l e s o f p r e p a r i n g a n d e x e c u t i n g p u b l i c r o a d c o n s t r u c t i o n i n v e s t m e n t p r o j e c t s A c t d a t e d 10 A p r i l 2 0 0 3 w a s s h o w n o n t h e f i g u r e 2.135
road manager zarządca drogiO
request wniosekO
notice (indirect, direct) zawiadomienie (pośrednio, bezpośrednio) governor (national, provincial) starost (county, communal) wojewoda (krajowe, wojewódzkie) starosta (powiatowe, gminne)o
o
ministry of infrastructure, governor ministerstwo infrastruktury, wojewodaO
appeal odwołanie administrative suit rozprawa administracyjnao
o
decision decyzjao
o
decyzja ostatecznafinal decision notice(indirect, direct) zawiadomienie
(pośrednio, bezpośrednio)
Fig. 2. Land acquisition procedure according to Detailed principles of preparing and execu
ting public roads construction act
Rys. 2. Procedura nabywania gruntów według Ustawy o szczególnych zasadach przygotowa
nia i realizacji inwestycji w zakresie dróg publicznych
Source: Authors’ own study on the basis of The detailed principles... [Act 3, 2003]
Źródło: Opracowanie własne na podstawie The detailed principles... [Act 3, 2003]
I n t e r m s o f P o l i s h n o m e n c l a t u r e t h e A c t r e g u l a t i n g t h a t p r o c e d u r e h a s a n “ i n c i d e n t a l c h a r a c t e r ” w h i c h m e a n s t h a t i t w o r k s o n l y f o r a c e r t a i n p e r i o d o f tim e . I t w a s a c c e p t e d i n c o n n e c t i o n w i t h a h u g e r o a d b u i l d i n g c o n c e r n i n g m a n y r o a d s p r o j e c t s a l l o v e r t h e c o u n t r y t h a t h a d t o b e f i n i s h e d w i t h i n s p e c i f i e d d a te s . I t l o s e s i t s ’ p o w e r i n 3 1 D e c e m b e r 2 0 2 0 . A c c o r d i n g t o t h e l e g a l a c t s m e n t i o n e d s o f a r p r o p e r t y r i g h t s w e r e t a k e n o n l y b y v i r t u e o f la w . T h e l a s t A c t t h a t d e a l s w i t h th e p r o c e d u r e s o f l a n d a c q u i s i t i o n f o r p u b l i c r o a d s i n v e s t m e n t s e s p e c i a l l y i n c o n n e c t i o n w i t h l a n d d i v i s i o n a n d l a n d c o n s o l i d a t i o n i n t r o d u c e s t w o a n o t h e r w a y s - c iv i l a g r e e m e n t a n d e x p r o p r i a t i o n .
PROCEDURE OF LAND ACQUISITION FO R UEFA EURO 2012 ROADS
INVESTMENTS
T h e p l a n n i n g s t a g e o f E u r o 2 0 1 2 p r o j e c t s ( o n l y t h e o n e l i s t e d i n s p e c i a l d i r e c t i v e ) s t a r t s e v e r y t i m e w i t h d e c i s i o n o n i n v e s t m e n t l o c a t i o n i s s u e d b y th e g o v e r n o r w i t h i n a m o n t h a t t h e r e q u e s t o f t h e t a r g e t c o m p a n y o r o t h e r c o m p e t e n t
136
b o d y . A s s o o n a s t h e g o v e r n o r r e c e i v e s t h e r e q u e s t h e is o b l i g e d to s e n d a n o t i c e o n i n i t i a t i o n t h e p r o c e s s o f i s s u i n g d e c i s i o n t o a l l t h e p a r t i e s i n v o l v e d i n t h e p r o c e s s ( p r o p e r t y o w n e r s , p e r p e t u a l u s u f r u c t u s e r s e tc ) . M o r e o v e r h e g i v e s a n o t i c e o n t h a t i n p r o v i n c i a l o f f i c e s , m u n i c i p a l o f f i c e s , w e b s i t e s a n d l o c a l p r e s s . T h e d e c i s i o n o n i n v e s t m e n t l o c a t i o n c o n t a i n s i n p a r t i c u l a r :-
lan d dem arcatio n lines
,- t h e t e c h n i c a l c o n d i t i o n s f o r t h e p r o j e c t o f E u r o 2 0 1 2 ,
- c o n d i t i o n s r e s u l t i n g f r o m a l e g a l l y p r o t e c t e d p r e s e r v a t i o n o f t h e e n v i r o n m e n t , p r o t e c t i o n o f h i s t o r i c a l a n d c o n t e m p o r a r y c u l t u r a l g o o d s a n d n a t i o n a l d e f e n s e n e e d s , - t h e r e q u i r e m e n t s f o r t h e p r o t e c t i o n o f t h e i n t e r e s t s o f t h i r d p a r t i e s ,
-
ap p ro v al of th e division of p ro p e rty
,-
th e p ro p e rty o r th e ir p a rts, according to real estate ca d astre, w hich will beco
m e th e p ro p e rty of th e T re asu ry o r th e local a u th o ritie s
,- t h e t i m e l i m i t f o r i s s u i n g p r o p e r t y o r e m p t y p r e m i s e s a n d o t h e r f a c i l i t i e s ( m i n i m u m 3 0 d a y s ) . W h e n d e c i s i o n is i s s u e d g o v e r n o r d e l i v e r s i t t o t h e a p p l i c a n t a n d s e n d s a n o t i c e t o a l l t h e i n v o l v e d p a r t i e s i n t h e s a m e w a y a s i n t h e c a s e o f i n i t i a t i o n t h e p r o c e s s o f i s s u i n g d e c i s i o n . T h e n o t i c e c o n t a i n s a n i n f o r m a t i o n a b o u t t h e p l a c e w h e r e t h e p a r t i e s c a n r e a d t h e d e c i s i o n . A p p e a l s a g a i n s t t h e d e c i s i o n o f g o v e r n o r c a n b e m a d e t o t h e m i n i s t e r o f i n f r a s t r u c t u r e . D e c i s i o n o n i n v e s t m e n t l o c a t i o n a p p r o v e s p r o p e r t y d i v i s i o n s o t h e l a n d d e m a r c a t i o n l i n e s e s t a b l i s h e d i n i t b e c o m e p r o p e r t y d i v i s i o n l in e s . A s s o o n a s t h e d e c i s i o n b e c o m e s f i n a l a l l t h e p r o p e r t i e s i n c l u d e d i n i t b e c o m e b y v i r t u e o f l a w n a t i o n a l , l o c a l g o v e r n m e n t u n i t ’s. I f o n t h e p r o p e r t i e s ’ o w n e r s h i p o r p e r p e t u a l u s u f r u c t r i g h t l i m i t e d p r o p e r t y r i g h t s a r e s e t u p , t h e y a l l e x p i r e t h e n . I f t h e p r o p e r t y o w n e d b y t h e S t a t e T r e a s u r y o r l o c a l g o v e r n m e n t u n i t h a s b e e n p r e v i o u s l y l e a s e d o r r e n t e d , t h e d e c i s i o n t o e s t a b l i s h t h e l o c a t i o n o f a p r o j e c t f o r E u r o 2 0 1 2 is t h e b a s i s f o r t h e t e r m i n a t i o n o f a l e a s e o r r e n t a l w i t h i m m e d i a t e e f f e c t . F i n a l d e c i s i o n c o n s t i t u t e s b a s i s f o r c h a n g e s i n l a n d r e g i s t e r s a n d c a d a s t r e . B e f o r e b u i l d i n g p e r m i t is o b t a i n e d p r o p e r t i e s m a y b e u s e d f r e e o f c h a r g e b y t h e o w n e r s o r p e o p l e w h o h a d d i f f e r e n t l e g a l t i t l e s t o r e a l e s t a t e ( a c c o r d i n g t o t h e l o c a t i o n d e c i s i o n ) . T h e p r o c e d u r e o f l a n d a c q u i s i t i o n a c c o r d i n g t o t h e T h e A c t o n p r e p a r a t i o n o f t h e f i n a l t o u r n a m e n t o f t h e U E F A E u r o p e a n F o o t b a l l C h a m p i o n s h i p s E U R O 2 0 1 2 d a t e d 7 S e p t e m b e r 2 0 0 7 w a s s h o w n o n t h e f i g u r e 3. T h e E U R O 2 0 1 2 l a n d a c q u i s i t i o n p r o c e d u r e is n o t t h e o n l y p o s s i b l e p r o c e d u r e p r o v i d e d f o r t h e E U R O 2 0 1 2 r o a d b u i l d i n g p r o j e c t s . T h e r e is a n a l t e r n a t i v e p r o c e d u r e , a l r e a d y e x p l a i n e d , w h i c h w a s s u p p o s e d t o b e a d o p t e d f o r a l l t h e o t h e r r o a d b u i l d i n g i n v e s t m e n t s ( f o r a l l t h e r o a d c a t e g o r i e s ) b u t f i n a l l y f o u n d i t s ’ a p p l i c a t i o n a ls o h e r e ( w i t h s o m e e x c e p t i o n s ) - t h e p r o c e d u r e r e g u l a t e d i n th e d e t a i l e d p r i n c i p l e s o f p r e p a r i n g a n d e x e c u t i n g p u b l i c r o a d c o n s t r u c t i o n i n v e s t m e n t p r o j e c t s A c t d a t e d 10 A p r i l 2 0 0 3 . P o l i s h l e g a l s y s t e m h a s d e v e l o p e d a n u m b e r o f d i f f e r e n t p r o c e d u r e s d e s i g n a t e d f o r p a r t i c u l a r p u b l i c p u r p o s e i n v e s t m e n t s - p u b l i c r o a d s . I n o r d e r to c o m p a r e a n d c o n t r a s t s o l u t i o n s a d o p t e d a b r o a d t h e a u t h o r s o f t h e p a p e r p r e s e n t e d l a n d a c q u i s i t i o n p r o c e d u r e s o f t w o o t h e r s e l e c t e d c o u n t r i e s .
137
EURO 2012 target company EURO 2012 spółka celowaV
J
S'
N ministry of infrastructure ministerstwo infrastruktury o / . . \ indirect notice (offices, press, web sites) pośrednie zawiadomienie (urzędy, prasa, witryny internetowe) O S N request wniosek appeal odwołanie o o O C \ f--->governor i—\ administrative suit i—1\ wojewoda rozprawa administracyjna
V y V J decision decyzja v. >
^ ___
o
final decision decyzja ostateczna direct notice (property owners, target company etc.) bezpośrednie zawiadomienie(właściciel, target company etc.)
notice (indirect, direct) zawiadomienie (pośrednio, bezpośrednio)
'
Fig. 3. EURO 2012 land acquisition procedure.
Rys. 3. Procedura nabywania gruntów na EURO 2012.
Source: Authors’ own study on the basis of Act on preparation... [Act 4, 2007]
Źródło: Opracowanie własne na podstawie Act on preparation... [Act 4, 2007]
LAND ACQUISITION PROCEDURES FO R PUBLIC PURPOSE INVESTMENTS
IN SELECTED COUNTRIES
T h e n e x t p a r t o f t h e p a p e r p r e s e n t s l e g a l p r o c e d u r e s o f l a n d a c q u i s i t i o n t h a t h a s b e e n d e v e l o p e d i n N o r w a y a n d G e r m a n y . A l l t h e i n f o r m a t i o n c o n c e r n i n g th e l a n d a c q u i s i t i o n p r o c e d u r e s f o r p u b l i c p u r p o s e i n v e s t m e n t s p r e s e n t e d b e l o w w e r e b a s e d o n c o m p r e h e n s i v e c o m p a r a t i v e s t u d y o f t h r e e c o u n t r i e s : P o l i s h , G e r m a n a n d N o r w e g i a n , o n a l m o s t a l l i s s u e s o f e x p r o p r i a t i o n , w h i c h w a s p r e s e n t e d a t t h e C o n g r e s s o f t h e F I G i n 2 0 1 0 i n S y d n e y [ W a l a c i k a n d Z r o b e k 2 0 1 0 , V o s s 2 0 1 0 , S t e i n s h o l t 2 0 1 0 ] .NORWAY
T h e m a i n l e g a l a c t s r e g u l a t i n g t h e p r o c e d u r e s o f l a n d a c q u i s i t i o n f o r p u b l i c p u r p o s e i n v e s t m e n t s i n N o r w a y a n d s e t t i n g u p a n u m b e r o f p r i n c i p l e s r e g a r d i n g t h e p r o c e s s a r e : - T h e e x p r o p r i a t i o n A c t, - T h e c o m p e n s a t i o n c o u r t p r o c e d u r a l A c t. T h e w h o l e p r o c e d u r e o f l a n d a c q u i s i t i o n f o r p u b l i c p u r p o s e i n v e s t m e n t s h a s i t s ’ r o o t s i n t h e p l a n n i n g p r o c e s s w h i c h , a c c o r d i n g to t h e s o c a l l e d p r i n c i p l e o f p o s i t i v e l a w p e r m i t , l i m i t s t h e u s e o f e x p r o p r i a t i o n t o a f i x e d n u m b e r o f p u r p o s e s . A s s o o n138
a s t h e p l a n d e c i s i o n i s g i v e n a u t h o r i t i e s a r e g i v e n g r e e n l i g h t f o r l a n d a c q u i s i t i o n p r o c e d u r e . T h e f i r s t s t e p o f t h e p r o c e d u r e i n c l u d e s n e g o t i a t i o n s w h i c h i n c l u d e b o t h p u b l i c h e a r i n g a n d s p e c i f i c c o n t a c t w i t h t h e r i g h t h o l d e r s . W h e n t h e p a r t i e s r e a c h a n a g r e e m e n t t h e p r o c e d u r e f i n i s h e s i n t h e s a m e w a y a s i n P o l a n d - b y c iv i l a g r e e m e n t . I f n o t , t h e h e a r i n g s t a k e s p l a c e w h i c h c a n l e a d b o t h to e x p r o p r i a t i o n d e c i s i o n a n d v a l u a t i o n d e c i s i o n . F i n a l d e c i s i o n s c a u s e t r a n s f e r o f r i g h t s a n d r e s u l t i n c o m p e n s a t i o n p a y m e n t . r A planning processproces planowania uchwalenie planuplan decision negotiationnegocjacje
p \
lack of agreement brak porozumienia
V y
civil agreement
umowa cywilnoprawna
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porozumienieagreementhearing rozprawa final decision
decyzja ostateczna
O
valuation court decisiondecyzja sądu odszkodowawczego
expropriation decision decyzja o wywłaszczeniu
O
higher courtsąd wyższej instancji
O
odwołanieappealFig. 4. Norwegian procedure of land acquisition for public purpose investment according to
The Expropriation Act and Compensation Court Procedural Act
Rys. 4. Norweska procedura przejmowania nieruchomości pod inwestycje celu publicznego
według Ustawy wywłaszczeniowej oraz Ustawy o postępowaniu Sądów Odszkodo
wawczych
Source: Źródło: Źróbek et al. 2010
GERMANY
B e c a u s e o f t h e f a c t t h a t l e g a l s y s t e m i n G e r m a n y i s s l i g h t l y d i f f e r e n t f r o m P o l i s h o r N o r w e g i a n o n e , i n o r d e r t o s p e c i f y l e g a l a c t s r e g a r d i n g l a n d a c q u i s i t i o n p r o c e d u r e s f o r p u b l i c p u r p o s e i n v e s t m e n t s , o n e o u g h t t o l o o k b o t h a t t h e F e d e r a l A c t s ( e .g . T h e F e d e r a l B u i l d i n g C o d e ) a n d S t a t e ’s A c t s ( e .g . S t a t e ’s E x p r o p r i a t i o n A c t s ) . T h e s t a r t i n g p o i n t f o r e v e r y l a n d a c q u i s i t i o n f o r p u b l i c p u r p o s e i n v e s t m e n t s i n G e r m a n y i s t h e s o c a l l e d p r e - n e g o t i a t i o n s t a g e ( n o t o f f i c i a l p a r t o f p r o c e d u r e ) i n w h i c h e n t i t y i n t e r e s t e d i n l a n d a c q u i s i t i o n n e g o t i a t e t h e c o n d i t i o n s o f v o l u n t a r y a g r e e m e n t w i t h t h e p r o p e r t y o w n e r . T h e e n t i t y g i v e s a “ r e a s o n a b l e o f f e r ” a n d d o c u m e n t s i t i n o r d e r to h a v e j u s t i f i e d r e a s o n f o r s t a r t i n g e x p r o p r i a t i o n p r o c e d u r e i f t h e a g r e e m e n t i s n o t r e a c h e d . T h e s e c o n d s t a g e o f t h e p r o c e d u r e is t h e p r e l i m i n a r y s t a g e . T h a t p a r t o f t h e l a n d a c q u i s i t i o n p r o c e s s i s v e r y i m p o r t a n t i n t e r m s o f th e f o r m a l p r o c e d u r e p r e p a r a t i o n . D u r i n g t h a t s t a g e T h e E x p r o p r i a t i o n A u t h o r i t y i n s p e c t s t h e w h o l e s i t u a t i o n , w h i c h m e a n s t h a t i t g e t s to k n o w t h e i n v o l v e d p a r t i e s , v e r i f i e s t h e i r s t a t e m e n t s a n d c h e c k s i f t h e a p p l i c a n t t r i e d to b u y t h e p r o p e r t y b y g i v i n g r e a s o n a b l e o f f e r . I n o r d e r to j u d g e w h e t h e r t h e o f f e r w a s r e a s o n a b l e139
o r n o t T h e E x p r o p r i a t i o n A u t h o r i t y o r d e r s a n i n d e p e n d e n t v a l u a t i o n o f t h e p r o p e r t y w h i c h is d o n e b y V a l u a t i o n C o m m i t t e e o r b y c e r t i f i e d v a l u e r s . I f t h e E x p r o p r i a t i o n A u t h o r i t y c o m e s to a c o n c l u s i o n t h a t t h e l e g a l c o n d i t i o n s f o r e x p r o p r i a t i o n a r e f u l f i l l e d t h e f o r m a l p r o c e d u r e w i l l b e o p e n e d . T h e f o r m a l p r o c e d u r e s t a r t s w i t h t h e d a t e o f o f f i c i a l h e a r i n g o r t r i a l t h a t t h e p a r t i e s a r e i n v i t e d to . F r o m t h a t m o m e n t th e p r o c e d u r e b e c o m e s p u b l i c , b e c a u s e i n f o r m a t i o n a b o u t i t i s n o t o n l y p u b l i s h e d i n l o c a l n e w s p a p e r s b u t a ls o n o t i c e d i n l a n d r e g i s t e r s , n e v e r t h e l e s s t h e f a c t t h a t i t h a s a l r e a d y b e e n s t a r t e d d o n o t e x c l u d e a g r e e m e n t a t t h a t s t a g e . I f t h e a g r e e m e n t is n o r e a c h e d t h e f u l l p r o c e d u r e c o n t i n u e s w h i c h i n c l u d e s p r o v i n g t h a t t h e p u b l i c p u r p o s e i n v e s t m e n t r e a l i z a t i o n is l e g i t i m a t e , t h a t t h e t r a n s f e r o f o w n e r s h i p r i g h t is n e c e s s a r y a n d c o m p e n s a t i o n d e t e r m i n a t i o n . E v e n w h e n t h e e x p r o p r i a t i o n p r o c e d u r e r e a c h e s s u c h a n a d v a n c e d s t a g e t h e r e a r e s t i l l t h r e e s c e n a r i o s i t c a n f o l lo w : - p a r t i e s c a n r e a c h a n a g r e e m e n t , - p a r t i e s c a n r e a c h a p a r t i a l a g r e e m e n t - l a n d o w n e r d o e s n o t q u e s t i o n t h e l e g i t i m a c y o f p u b l i c p u r p o s e i n v e s t m e n t b u t d i s a g r e e s w i t h t h e a m o u n t o f c o m p e n s a t i o n , - p a r t i e s c a n n o t r e a c h a n a g r e e m e n t . I f t h e t h i r d s c e n a r i o t a k e s p l a c e e x p r o p r i a t i o n d e c i s i o n is g i v e n , w h i c h c a u s e s t r a n s f e r o f r i g h t s a n d d e t e r m i n e s t h e a m o u n t o f c o m p e n s a t i o n . F i r s t o r s e c o n d s c e n a r i o o b l i g e s p a r t i e s to c o n c l u d e a c o n t r a c t u n d e r p u b l i c l a w w h i c h r e q u i r e s a n e x e c u t i o n o r d e r t o b e e f f e c t i v e . G e r m a n l e g a l s y s t e m g i v e s p a r t i e s t h e p o s s i b i l i t y \ planning process proces planowania V J0
negotiation negocjacje civil agreement umowa cywilnoprawnao
agreement porozumienie lack of agreement brak porozumienia 2Ü L
partial decisionczęściowa decyzja o hearing - rozprawa 0
expropriation application wniosek o wywłaszczenie
O
O
compensation decision
decyzja odszkodowawcza decyzja o wywłaszczeniuexpropriation decision
O
o
final decision
decyzja ostateczna court - sąd
Fig. 5. German procedure of land acquisition for public purpose investment according to the
Federal Building Code and States’ Expropriation Acts
Rys. 5. Niemiecka procedura przejmowania nieruchomości pod inwestycje celu publiczne
go według Federalnego Kodeksu Budowlanego oraz przepisów wywłaszczeniowych
landów
140
o f a p p e a l t o c o u r t ( m a x i m u m 3 i n s t a n c e s ) . T h e w h o l e p r o c e d u r e o f l a n d a c q u i s i t i o n f o r p u b l i c p u r p o s e i n v e s t m e n t a c c o r d i n g to t h e F e d e r a l B u i l d i n g C o d e a n d S t a t e s ’ E x p r o p r i a t i o n A c t s w a s s h o w n o n f i g u r e 5.
