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The Republic of Latvia THE CONSTITUTIONAL COURT OF THE REPUBLIC OF LATVIA Riga, March 9, 2004 JUDGMENT in the name of the Republic of Latvia in case No. 2003-16-05 The Republic of Latvia Constitutional Court in the body of the Chairman of the Court session Aivars Endziņš, justices Ilma Čepāne, Romāns Apsītis, Juris Jelāgins, Gunārs Kūtris and Andrejs Lepse with the secretary of the Court session Oskars Garkājs in the presence of Valentīna Elksne and the sworn advocate Viktors Tihonovs – the authorized representatives of the submitter of the claim – the Jūrmala City Dome (Council) as well as Artis Stucka – the authorized representative of the official who has passed the challenged act – the Minister of Regional Development and Municipal Affairs under Article 85 of the Republic of Latvia Satversme (Constitution), Articles 16 (Item 5), 17 (Item 7 of the first part) and 19 of the Constitutional Court Law on February 10 and 11, 2004 in a public hearing in Riga reviewed the case ”On the Compliance of the Minister of Regional Development and Municipal Affairs May 27, 2003 Order No. 2-02/57 on Suspension of the Enforcement of the Jūrmala City Dome October 24, 2001 Binding Regulations No. 17 ”On the Jūrmala Detailed Land Use Plan for the Territory between the Bulduri Prospect, Rotas Street and 23-25 Avenues”; the Minister of Regional Development and Municipal Affairs June 2, 2003 Order No. 2-02/60 on Suspension of the Enforcement of the Jūrmala City Dome October 9, 2002 Binding Regulations No. 10 ” On the Confirmation of the Detailed Land Use Plan for the Public Centre ”Vaivari” as well as the Minister of Regional Development and Municipal Affairs Order No. 2- 02/62 on Suspension of the Enforcement of the Jūrmala City Dome November 7, 2001 Binding Regulations No. 18 ”On the Confirmation of the Detailed Land Use Plan for the Plot Bulduri 1001, Jūrmala” with Article 1 of the Republic of Latvia Satversme””. 1 The establishing part On October 24, 2001 the Jūrmala City Dome (Council) adopted binding Regulations No. 17 ”On the Detailed Land Use Plan in Jūrmala, for the Territory between the Bulduri Prospect, Rotas street and 23-25 Avenues” (henceforth – the Dome Regulations No.17); on November 7 2001 – the binding Regulations No.18 ”On the Confirmation of the Detailed Land Use Plan for the Plot Bulduri 1001, Jūrmala” (henceforth – the Dome Regulations No. 18) and on October 9, 2002 – the binding Regulations No. 10 ”On the Confirmation of the Detailed Land Use Plan for the Public Centre ”Vaivari” (henceforth – the Dome Regulations No.10). In February of 2003 several deputies of the Saeima, including also Leopolds Ozoliņš, Jānis Strazdiņš, Pēteris Kalniņš, Indulis Emsis, Andris Bērziņš and Augusts Brigmanis addressed an appeal to the Procurator General’s Office, requesting it to assess the legitimacy of alienation and renting of particular land plots in Jūrmala. Inter alia the deputies pointed out that the Jūrmala City Dome has not taken into consideration the requirements of Article 36 of the Law on the Protected Belt, namely, it has allowed alienation of the state owned plots in the protected coastal zone of the Baltic sea, without requesting the Cabinet of Ministers (henceforth – CM) to pass the Decision on it. The deputies stated that at the time of elaboration of the land use plan of the territory the public viewpoint has not been taken into consideration either (see Latvijas Vēstnesis February 13, 2003, No. 24). When verifying the above the Procurator of the Procurator General’s Office Department of Protection of the Rights of Persons and the State Guntis Akmeņkalns established that several land use plans not only were at variance with the Development Plan (henceforth –the Master Plan) of the City of Jūrmala but also had not been elaborated in compliance with the Cabinet of Ministers December 5, 2000 Regulations No. 423 ”Regulations on Territorial Planning” (henceforth – Regulations No.423). On April 24, 2003 G.Akmeņkalns –under the procedure envisaged by law- submitted application to the Jūrmala City Dome. He required to suspend as unlawful the enforcement of Dome Regulations No. 18 and No. 10. On the same day he forwarded the letter to the Minister of Regional Development and Municipal Affairs, requesting to suspend the enforcement of the above binding Regulations under Article 49 of the Law ”On Local Governments”. In its April 20, 2003 written reply to G.Akmeņkalns the Jūrmala City Dome pointed out that the facts mentioned in the application were untrue, namely, that the Jūrmala City Dome had not violated Regulations No. 423 and requested the Procurator to repeatedly assess the requirements, mentioned in the application of April 24, 2003. 2 On May 27, 2003 the Minister of Regional Development and Municipal Affairs passed Order No. 2-02/57 ”On Suspension of the Enforcement of the Jūrmala City Dome October 24, 2001 Binding Regulations No.17 ”On the Jūrmala Detailed Land Use Plan in the Territory between the Bulduri prospect, Rotas Street and 23-25 Avenues”” (henceforth – Order No. 2-02/57). It is pointed out in the Order that the Jūrmala City Dome February 3, 2000 Decision No. 85 ”On Amendments to the Jūrmala City Development Plan (Master Plan)” (hereinafter – Decision No. 85) has not been adopted in the form of binding Regulations and thus the Master Plan, confirmed in 1995 was still in effect. Besides, the public dispute about the detailed land use plan lasted for three weeks; but Regulations No.423 establishes that public disputes in such cases shall be at least four weeks long. The Jūrmala City Dome has also not taken into consideration the negative conclusion on the above detailed land use plan, expressed by the State Inspection for the Protection of Cultural Monuments on October 15, 2001. On June 2, 2003 the Minister of Regional Development and Municipal Affairs passed Order No. 2-02/60 ”On Suspension of the Enforcement of the Jūrmala City Dome October 9, 2002 Binding Regulations No.10 ”On the Confirmation of the Detailed Land Use Plan for the Public Centre in Vaivari”” (hereinafter – Order No. 2-02/60) and another Order No. 2-02/62 ”On Suspension of the Enforcement of the Jūrmala City Dome November 7, 2001 Binding Regulations No.18 ”On the Confirmation of the Detailed Land Plan for the Plot Bulduri 1001””. In the motivation of the Order the Minister points out that ”with the above detailed land use plan the Jūrmala City Dome changes the planned (permitted) use of the territory included in the Jūrmala City Development Plan (Master Plan). When establishing the above fact, the Jūrmala City Dome had to take the Decision on commencement of elaborating the amendment to the plan of the territory or the detailed land use plan had to be elaborated as the basis for amending the planning of the territory of the municipality”. Thus the Minister expresses the viewpoint that the Jūrmala City Dome has violated the requirements of Regulations No.423. The submitter of the claim holds that Orders No.2-02/57; No.2-02/60 and No. 2-02/62 do not comply with the principles of a law-based state, among them principles of legitimate trust, proportionality and legal stability, following from Article 1 of the Republic of Latvia Satversme (hereinafter – the Satversme). The principle of proportionality to the mind of the submitter limits freedom of performance and arbitrariness of the executive power and is based on certain criteria. As concerns this principle to submitter’s mind the Minister has not sufficiently assessed the influence of his Orders on the rights of private 3 persons, which had lawfully arisen on the basis of the suspended binding Regulations by the municipality. The principle of legal stability in its turn secures planned for certain terms execution of the activities of the executive power. As the Minister did not pass his Orders in due time – after the adoption of the municipality binding Regulations, to the mind of the submitter the principle of legal stability has been violated. In its answers to the questions of the Constitutional Court the submitter specifies that the principle of legitimate trust shall be observed as regards private persons and not as regards the Jūrmala local authority, however, to his mind the principle shall be respected also by the state when organizing the administration process, like when examining the legitimacy of the detailed land use planning. Several administrative acts, based on the above binding Regulations, have been passed. The addressees had trusted the legitimacy of the activities performed by the state and thus- they had planned their personal activities. Taking into consideration the fact that the addressees of the administrative act believed in trust in law, their legitimate trust shall be protected. If the State violates the above principle, the addressees of the administrative act shall receive remuneration from the state (the municipality). The Institution, which has passed the challenged act – the Minister of Regional Development and Municipal Affairs (henceforth – the Minister) does not agree with the viewpoint of the submitter. In his written replies the Minister expresses the viewpoint that the detailed land use plans, confirmed by the suspended binding Regulations of the municipality, have not been elaborated in conformity with Item 52 of Regulations No. 423, which regulates the procedure of elaboration of the plans. The submitter, when realizing that the detailed plans change the Master Plan, should have taken the Decision of amending it. The nature of the detailed plans certifies that with the help of the plans the Master Plan is being altered and in this case the procedure of their adoption, confirming and taking effect shall be in compliance with the procedure, which is applied when making amendments to the territorial planning.
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