Modification of the overall building of the parish before the final approval of poupo: no need for a second public exhibition
"For the appeal, the major change is that while the initial project established a global building of the Parish of 6,120,881 m2/st provisional approval to reduce the m2/st 5,551,028.
The initial calculation of the building containing the project in 2003 had to be modified by application of guidelines for planning the government approved a decree of 22 February 2006 (BOPA 24 February 2006) and what did the Council of Andorra la Vella was not anything that fit the calculation to clarify that, in regulatory status, established by Decree mentioned.
The adaptation law is not a "substantial change" in planning to not affect the overall structure of the territory within the meaning of Article 71.d) of LGOTU and therefore had to be carried out as was done , ie, incorporating it directly into the document provisionally approved, without the nature of it demanded a new period of public information, which involves the rejection of the Form of appeal. "
Judgment of the Superior Court room administrative dated 11/12/09, west L. Saura, number 100-09.
Tags: building
The planning agreement in Andorran law
Section: Planning
The agreement is a planning instrument for the regulation of urban planning and execution
Both LGOTU as the regulations that develop as the community Ordinacions not determine the existence of an agreement or regulation as a planning tool for urban development of public administration, end that is reserved exclusively for individuals, attributing the communal administrations partial plans, and special programs for inner urban reform, protection and sanitation, as contained in Articles 107 to 125 of LGOTU.
Under this regulation, the role of planning agreements is set as an instrument of execution in the development processes exclusively between individuals and is therefore conceived as a legal transaction between private parties without authority to alter the arrangement of instruments adopted by the competent authorities, prohibition prevents any referral by the poupo to determine the effect of urban planning. Such a conception is consistent and responds to the fact that our constitution gives the urban planning initiative to private agents, unlike our other legal environment in which they regulate different mechanisms in which, contrary to our regulations, the Public Administration determines the mode of execution planning and therefore the possibility that public authorities take the initiative through administrative agreement in the planning process, why are considered administrative contracts, unlike our order book that this initiative the alternative means of these instruments.
Planning Regulation determines prorated so the instruments that enable the legitimacy of planning, which in any case include planning agreements.
Article 83 The legitimizing function of planning.
Completing the set of legal actions and materials that make up the execution of urban activity requires prior approval of the figure or simultaneous approach that is appropriate in each case, attention to the kind of soil. The planning instruments that, in some cases, legitimate activity execution, are:
a) Projects of national interest.
b) Sector plans affecting supracomunal.
c) management plans and urban parish in the consolidated urban land that is not covered by a sector of urban renewal.
d) The partial plans or special units of action and consolidated urban land not building land, and in areas defined by the urban renewal plan and urban planning in the parish consolidated urban land.
e) The regulation of building rehabilitation, renovation of interior urban protection and drainage for the implementation of relevant programs of rehabilitation of community buildings, urban interior reform, protection and sanitation.
In reinforcing the thesis that the legislature wanted to exclude from the scope of public administration figure of planning agreements, obtained in our law that when planning refers to the existence of these instruments Run, do only in private (Article 93, 109.9, 120.2.d, 122 and 142 LGOTU and 62 and 63 RU), and when it does this refer to the public, it is quality resulting from owning land transfer agreement for the purposes of development.
Realizing the legislature that the agreement has been planning a figure used by the government prior to the new conception of urban planning and regulation that introduces LGOTU, the LGTOU 120.2.e article refers to them as putting them figure above the new urban order, considering the existence and regulation for those that were approved prior to the entry into force of the LGOTU "e) any agreements between individuals documented granted by deed or decree adopted by the municipal or Government prior to the entry into force of this Act ", an explicit reference to their exclusion in the new urban order Andorran exclusion is not only nominal but beloved by his lack of regulation.
Publicity of planning agreements
In all cases the instruments of planning and implementation planning, and in the event that planning agreements have podessin this nature, extreme denies that part should also ensure the requirements of publicity, information and citizen participation that LGOTU (arts. 7, 96 and 112), RC (Art. 7, 8 and 9) and RU (arts. 4 and 5) establish the articles of instruments for implementation planning, which ends necessarily occur due to the publication of the BOPA adopted the instrument and its contents, in order to empower the knowledge of their contents and thus exercise for those interested in the shares impugnatòries that empowers the planning and administrative regulations on general principles that guarantee the Our constitution provides in terms of planning, especially in relation to the principles of rational use of land, the public interest and general welfare, the social function of property and the fair distribution of benefits and burdens arising from the planning process, a land wisely and protective
The lack of publication stated that prevents these agreements can achieve any efficiency, among other reasons already exposed on the efficiency requirements of the legislation, in accordance with the provisions of Articles 1, 45 and 46 of the Administrative Code and 3.2 of the Constitution.
In this respect the Article 7 and 8 of the Building Regulations to regulate the advertising of the necessary instruments of urban planning, specifically excludes any reference to the planning agreement, not to exclude their publication, but given its regulation outside this area for when he has the nature of legal business among private as mentioned above.
Tags: convention planning , advertising
Land law and policy of access to housing
Section: Planning
In recent months there have been a number of proposals and discussions on how to improve access to housing for citizens of Andorra, as the refuge value of many investments and a special action because of the speculative building moratorium, have located homes for sale, and the few existing rental housing at a price impossible for a family living wage, ie the majority. This is a more far reaching social and economic principles proclaimed in Chapter V of the Constitution, whereby the public authorities shall promote the conditions necessary to implement the right of everyone to enjoy fair housing law, which undoubtedly has a significant social impact, thus contributing to the quality of life and its roots in the country.
If you want easy access to housing for citizens of Andorra, is not only leave its regulation to market rules, there is no other option but to implement mechanisms of action, and in a state law when the state does intervene normatively, ie with laws establishing the framework within which to develop both the private and public, to achieve a particular model of society through the protection of interests general. On housing intervention involves the planning of urban planning, land use ordinance and in accordance with the rational use of land, the public interest and the social function of property values also proclaimed the Constitution, and collected with more or less effective in the general law of the regional and urban planning (land law), which should allow, by constitutional mandate, obtain decent housing.
Urban planning is a branch of administrative law with a clearly interventionist role, then tries to get in every time and the right balance between the exercise of property rights and the achievement of general interest, which is based on three pillars: social cohesion in relation to the right of citizens to obtain decent housing, economic development as the necessary factor of social progress and environmental awareness as an expression of sustainable growth; guidelines that most cities around us take on track premises set out in Agenda 21 of Rio 1992 and the Aalborg Charter in 1994. In this sense the law recognizes the principle of land for public participation in urban planning, both in its conception and execution, breaking the concept that real estate development is a matter reserved to the Administration and the promoter, but attending to their social importance is ensuring the participation of citizens, as evidenced in the process of public exhibition of plans and planning in the same way that must be made with the various development projects that want to develop in the future.
Andorra since 2000, has adopted the legislative instruments of urban planning, so real capacity to intervene in housing policy, but is lacking in the law of the land, and Regulations at the same time develop the mechanisms that exist around and entitled "Instruments of land policy and housing," and to constitute assets of public and private land (eg arts. 153 to 166 the law of the Catalan Urban 2/2002), to offer them in a position lower than the market. This public property is acquired primarily for the transfer of land in the development processes, but could be increased by the expropriation of land developable or not developable, the exercise of rights of first refusal and withdrawal in the onerous transmissions in certain areas, and fate in housing up to 20% on developments of private residential use.
I invoke the Catalan law for the obvious parallel with the regulatory law of the land, but our reality is quite different, but the end in any case should be lesson for another time. French legislation provides universal access to housing in very similar terms, means the Code of the Town Planning (Livre III: Aménagement foncier) and the Construction Code (Livre III several aides à la construction d'habitation et à l' améliorations of habitat - personnalisée Aide au logement), the APL-known aid that many students have received in Andorra during his stays in France, but if not accompanied by measures of intervention on market prices, the State condemned to a permanent subsidy, given the disparity between wages and rents.
The social housing policy for public institutions necessarily involves mainly the Commons, have land to build housing, and that part of private housing on the market with special conditions or protected, notwithstanding the complementary actions of tax incentives or public subsidies reduced interest rates, which by its nature and scope have limited efficacy. The proportion of housing to public or private initiative, and the percentage of promotions in the private, should be established by the law of the land in a fork wide enough, to determine the proportion that the Commons appropriate to their needs. In other legal systems have created the figure of affordable housing, halfway between the free market and subsidized housing, which allows for different pathways to housing, as required.
The main source for the establishment of a heritage of public land that is obtained by technically called the derived planning (promoter activity), the transfer of land at a rate of 5 to 15% of promotion as determined in the urban parish plans through partial plans (private enterprise) or special (public initiative), though this cession is designed to meet service needs and infrastructure (art . soil Act 33), and therefore inadequate and inappropriate for a social housing policy. In this respect the guarantee of use of urban land provided for in the Act, although some will have negative effects on urban planning strengthen in the future land use under the current regulation, and therefore making them immune to the new arrangements for planning, involves the transfer of a large amount of land that the Commons could be used to plan access to housing, although this point would require an amendment to the current urban planning regulations, avoiding in all cases the soil receiving the Commons does not become, as has happened elsewhere, more than a financing tool for affordable housing.
Therefore according to the above, the solution to facilitate access to housing is set up a heritage of public land and housing, and regulate the management of the Commons, so that by public housing, either directly or grant, you can implement the right of citizens to access to decent housing, and in the same way to achieve a reduction in market price due to the increased supply current, which ends only so much residual Andorran legislator wanted to include in the law of the land, and its implementing rules, then in some legal texts of over 180 pages and over 500 articles anywhere you can see the concept of social housing or sheltered, or policies on affordable housing. In this sense the law of the land is more a rule aimed at regulating the exercise of ius aedificandi and some planning, that will solve the problem of access to housing.
Given the limited Andorran tradition in the new urbanism concept, which will require a necessary process of adaptation of new mechanisms, still in draft until the approval of plans for urban parish, it would seem appropriate to promote the figure Agreements of Urban Planning, residually covered the land law in Article 107.3, for which without violating the principle of legality which requires the government to strict compliance with the law, and therefore unable to negotiate the public powers, developers could agree with certain developments or assignments that meet the objectives of access to housing, with the housing market on more favorable terms, always in accordance with the legally established criteria and objectives and controls the law authorizes.
The modifications introduced in the Land Act to apply access policies to housing, should not lead to a review of management plans and parish planning, given the extraordinary delay in its application, when the same Land Act forced its entry into force before February 2002, but should be directly applicable to planning legislation, and the Commons by ordinance determine the percentage of complementary aspects such as housing in the plans and partial Special, as well as the necessary instruments for the management of public land and housing. In this regard, and illustrative in the Catalan Parliament is currently studying a draft amendment to the Town Planning Act to promote affordable housing, which does nothing but further pointed in both directions, strengthen land reserves of local authorities to build housing, and strengthen the skills of planning schemes to determine which part of the new homes that made the private developers should have the conditions of housing.
Therefore be concluded that if you want a real policy of access to housing, and considering that our law has an obvious lack of urban design regulations, there is a triple modification of the law of the land in respect of possible agreement between administrations and developers through planning agreements, which authorize the Common constitute reserves of public land to build housing, to make concession or agreement directly with the financial structure of each corporation and reasons for attending chance, while determining a percentage of the homes have private housing conditions. Otherwise who sets the market prices.
25/6/04
For a democratic planning to citizens
Section: Planning
The property is not absolute or unlimited right, but the legal structure, hence the reservation because of law to define its content. This right in the field of urban use has a very significant impact also affect other rights protected by the Constitution: access to housing, environmental protection, rational use of land, the economic activity, quality of life. Affects significantly on the sustainability of the country, which is the same as saying the guarantee of their future to the extent that this may be compromised if we maintain the growth rate in 30 years that has allowed the country's population tripled, ( of 26,000 people in 1975 to the present 78,000 inhabitants), which should add to the thousands of people who have a second home.
The Constitution in its Article 27.1 establishes a limit on private ownership of its social function as regulated in the neighboring countries. The law of the land in Article 4 provides that the powers of the planning activity in response to the need to ensure rational use of land in congruence with the public interest and the social function of property consistent with the general welfare. Just as the jurisprudence of our courts have applied and developed this principle, stating that the limitations imposed on owners of urban land, in any case constitute a violation of property rights, but precisely the same definition.
So the public interest will require the right to build a command and has certain limits. Tool to define these extremes is the planning. So the planning is not just a regulation designed and used exclusively for developers, but an instrument in the hands of society to define what we are planning model. The planning goes beyond the strict definition of the construction parameters, determines the integration of man and the environment in regulating the activities in it have been developed. So urbanism in its ordering function and sustainability must seek the necessary balance between the legitimate and necessary interest in private real estate development, and the general interest of this activity, in the words of the Constitution: the role social property. In accordance with these principles, it is clear that the speculation in which the country is immersed for years, is located outside of this balance, when it is contrary to planning and social function that has be the promotion of housing.
If, as I noted, we have the necessary legal instruments and case law for planning, according to the full connotation that the term contains, and highlights the fact that the system does not achieve the results set out in the public interest, I plategen several issues:
· Explain how the main engine of the economy for 2004 is the construction, when the General Council adopted on 23 May 2003 a total suspension of construction permits, strengthening those already established itself Land Act 2000 in its second transitional provision?
· How come if the country has instruments of organization, in May of 2003 there was a spate of construction projects, encouraged by a public announcement of the decree of suspension of licenses, of which the more Justice declared null and void?
· Act as if that explained soil predicted two years for approval of plans for urban parish this afternoon over six years, in the most optimistic forecasts?
· Explain how the government has not made use of powers under the fourth transitory provision of the law of the land, to extend the suspension of licenses provided for in Article 91 of Law of the land, the case that common, without cause, definitely not have approved plans for urban development within established under this law? or is there just cause for this delay?
· As facing a common reduction of income for purposes of the moratorium? how it affects the planning of the need to reduce the significant debt income community?
· Explain how the government have combined the preparation of planning schemes and the existence of a moratorium, with the approval of planning agreements to develop major real estate developments, sometimes in places of protection natural?
· How is it that 5 years after approval of the land law, although this is not for lack of application deployment, and we still propose changes, the other part necessary?
· Want to say that the balance in managing the planning, not the private interest that outweighs the public interest? that horse is so unbridled speculation that even with all the instruments we have provided, we can stop it? lack the political will to apply the tools we have?
We should be facing a profound change of regime in terms of planning, both as normative conception and paradoxically, we find that the construction achieves the highest levels of activity that has ever had. The urban plans are fully guaranteed by the mortgage of urban use, for the conception of law that all land is private land for construction and maintenance of the overall building of the parish before the law of the land, genuine expressions Andorran private interest was incorporated into the urban planning regulations, to the detriment of such policies to promote housing laws that provide for our environment, extreme challenge, not only the viability of the system, but the very principle of general interest and the social function of property, which should be the core foundation and urban development.
Leaving the management of all real estate that can generate only country in the capacity market, or for strictly physical availability on deposit and leveling the rubble, merely establish a fertile ground for speculation, as has happened so far. To leave to speculation, and trying to apply the measures computers, protection and planning are already sterile when it would be an act of cowardice as well as irresponsible.
So because the system does not work? Why after five years have not been able to develop an urbanism that suits your needs, eliminating the speculative process in which we installed, and become a tool of progress and quality of life for citizens of Andorra ?. In short, why we have not been able to develop a democratic planning for the citizens of this country?.
Ultra responsibility of public managers and to the inefficiency of the system, civil society must take responsibility that the Law of the land trust him, but to date has failed to propose an alternative model of urban planning. The law of the land and the implementing regulations are entitled to that, individually or through associations, to participate in development processes, whether the allegations in formulating procedures for the preparation of plans and planning processing of development processes, either through partial plans, special or planning agreements, either by requiring the application of planning law in the execution of the property, and in particular the principles that inspire, using the resource public action that the law of the land in its Article 143 gives any citizen to challenge the acts contrary to them.
Plans are planning an expression of balance and reconciling private interest with public interest, a kind of social contract for six years to define a model of society. Citizen participation in its development as tant5 to control its execution, is the guarantee of democratic legitimacy. We advance the challenge of making urban planning more democratic, that is to amend the land law to fully protect the public interest and demand for public diligence and rigor in developing a plan for urban citizens.
We are facing a changing urban culture do not know or do not want to take, and the possibility of recovery are more limited every day. The solution is undoubtedly to the imposition of a planning service to democratic citizens.
7/10/05
Transfer of building or planning
Section: Planning
On March 25 proppassat Antoni Pol published in the Journal Tribune's an interesting reflection of Andorra entitled Transfer of building in urban planning initiative to understand more than timely to encourage discussion and disclosure regarding the challenges the land and the instruments most suitable for this purpose, at a particularly important in the development plans of urban parishes. Corresponc then this laudable initiative and I am going to say about the possibility that the building be moved, then do not share this ability.
1. - The distribution of the building is not alterable poupo outside their own.
Els plans d'urbanisme com a funció ordenadora de primer ordre i per mandat de la Llei del sòl, estableixen una determinada distribució de l'edificabilitat en el territori, i com és obvi aquesta distribució no pot ser uniforme, ni aleatòria, sinó que s'ha de fer en funció del que millor escaigui a cada indret, així per exemple en casc antic l'oportú és situar-hi edificis contigus d'una certa alçada, en una zona residencial xalets espaiats, en una zona industrial grans edificis que puguin acollir aquesta activitat i en zones de valor paisatgístic, històric o cultural caldrà una determinada tipologia o s'hi podrà construir poc o gens. Així doncs l'edificabilitat es configura com una qüestió vinculada a elements territorials més o menys objectius, d'acord amb un model prèviament establert. Alhora la previsió que el sòl públic no sigui urbanitzable, és igualment una funció ordenadora.
La Llei del sòl i el reglament d'urbanisme (arts. 73 i 28, 44 a 46) estableixen que és el pla d'urbanisme el que ha de distribuir l'edificabilitat global entre les unitats d'actuació, sense que cap altre instrument pugui alterar l'edificabilitat assignada a cadascuna d'elles per la via del trasllat d'edificabilitat, com tampoc la possibilitat de preveure'n un genèric traspàs. Cal tenir en compte que la distribució de l'edificabilitat que conforma la tasca d'ordenació del territori és una funció pública, en la qual no intervé la iniciativa privada, el que obliga a diferenciar la planificació de l'execució urbanístiques, com ja vaig plantejar en un article anterior.
2.- L'edificabilitat no és un dret subjectiu
La Llei del sòl i la normativa que la desenvolupa no atribueixen als propietaris de terrenys el dret a una determinada edificabilitat, sinó que la mateixa és la resultant del procés de planificació del territori que el comú estableix mitjançant el pla d'urbanisme, d'acord amb el criteri discrecional de planificació i en compliment de la normativa que orienta aquest procés. Per aquest motiu em sembla erroni entendre que els propietaris, en mèrits d'aquesta condició, disposen d'uns determinats “drets edificatoris” que poden traslladar o distribuir en les seves propietats i fins i tot vendre'ls.
L'obligació que conté la Llei del sòl de mantenir l'edificabilitat global de la parròquia no atribueix una determinada edificabilitat individual als propietaris, en la mesura que no és més que un paràmetre d'ordenació, com tants altres que el comú ha de complir en la redacció del Pla, quina invocabilitat s'exhaureix amb la mateixa aprovació del Pla i per tant no opera en les actuacions de gestió urbanístiques; edificabilitat global que tampoc es manté atès que la Llei del sòl ordena unes reduccions i en permet d'altres fins al 30% (art. 28 RU). Tant l'edificabilitat com l'aprofitament urbanístic resultant, estan vinculats indissociablement al sòl que dóna lloc als mateixos.
Pretendre que els propietaris mantenen la mateixa edificabilitat que amb anterioritat a la Llei del sòl és contrària a la pròpia Llei i suposa tornar a una concepció que entenia superada, en la mesura que d'acord amb els articles 16 de la Llei del sòl i 22 del Reglament d'Urbanisme el contingut urbanístic de la propietat és únicament resultat de la planificació i en conseqüència les limitacions d'aprofitament i d'ús dels terrenys i de les edificacions no confereixen drets d'indemnització de cap mena, principi que els nostres tribunals ja aplicaven amb anterioritat (vegi's els entorns de protecció de Pal). Per tant no es recupera l'edificabilitat dels terrenys objecte de cessió.
3.- Principi de legalitat
L'absència de menció en el nostre dret urbanístic del trasllat d'edificabilitat, obliga a que la seva regulació per la via del pla d'urbanisme estableixi si som davant d'un acte reglat o discrecional, és a dir si el comú la pot acordar o denegar al seu lliure criteri o en quins casos l'aprovarà, per necessitats públiques o privades i d'acord amb quins criteris.
Les contrapartides que obté el comú pel trasllat d'edificabilitat no emparen qualsevol actuació, per molt lloable i beneficiosa que pugui resultar, per quan l'actuació urbanística s'ha de desenvolupar d'acord amb la llei i els procediments establerts. Entenc que el respecte a la legalitat no pot estar condicionada a criteris d'oportunitat. L'acord entre administració pública i els privats no eximeix la tramitació ordinària del procés de desenvolupament urbanístic, i el trasllat d'edificabilitat no es pot fer per la via del conveni urbanístic. Entenc que el comú no pot adquirir edificabilitat, més enllà dels terrenys patrimonials.
4.- Les cessions de sòl i protecció com a raons del trasllat d'edificabilitat
La cessió de sòl obligatòria i gratuïta als comuns respon al principi de la participació de la comunitat en les plusvàlues que genera el procés urbanístic, d'acord amb el principi constitucional dels límits derivats de la funció social de la propietat. Atenent la naturalesa i finalitat de la cessió, entenc que no és possible obtenir més sòl de cessió fora del procés d'ordenació, per la via del l'increment de les plusvàlues urbanístiques, donant més edificabilitat a un determinat àmbit. No hauria de ser possible que cada cop que el comú vulgui obtenir terrenys de cessió, o vulgui compensar algun particular per les limitacions d'edificabilitat que pateix en mèrits de la protecció d'un determinat indret, augmenti l'edificabilitat d'altres terrenys per generar noves plusvàlues, que al seu torn facin possible suportar les cessions addicionals que pretén obtenir el comú.
La Llei del sòl estableix que les cessions es determinen per a cada unitat d'actuació en funció de les necessitats d'equipaments col·lectius i serveis, de futur o per dèficits ja existents (art. 33). D'acord amb aquesta disposició, fixar una cessió per sota el 15% i alhora establir les cessions voluntàries compensables amb edificabilitat, quan per llei són obligatòries i gratuïtes, suposa un contrasentit.
Si la finalitat del trasllat d'edificabilitat rau en la protecció de determinats entorns, o l'obtenció de sòl per a equipaments, la Llei de sòl atribueix als comuns instruments suficients per assolir aquests objectius, sense necessitat d'incrementar en un determinat indret l'edificabilitat inicialment prevista, doncs l'assoliment d'aquests objectius no ha d'anar en detriment del propi planejament. N'hi ha prou doncs amb voluntat política. La introducció de nous mecanismes en el pla d'urbanisme no previstos en la normativa, així com les mencions implícites de la llei, requereixen d'una especial prudència en el desplegament dels plans, per les distorsions que poden suposar respecte els objectius, no prou protegits, d'ordenament, sostenibilitat i utilització racionalitat del sòl.
Que el pla d'urbanisme converteixi tota l'edificabilitat de la parròquia en un actiu o valor que els propietaris puguin situar en altres unitats d'actuació i fins i tot vendre en el mercat, on el comú actuaria de banc dipositari i constituiria un calaix o estoc d'edificabilitat de manera independent al terreny que dóna lloc a la mateixa, a títol de dret personal, més enllà que fos jurídicament possible, entenc que està en contradicció amb els principis fonamentals de l'ordenació del territori i l'urbanisme, suposa una errònia compatibilització de l'interès públic amb el privat i desnaturalitza el nou règim urbanístic.
9/4/08
