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LAND LEGAL RELATIONS AS A SUBJECT OF ADMINISTRATIVE COURTS’ JURISDICTION

 

 

We have come to the conclusion that land legal relations forma subject of regulation of private and public legislation. This facts consists difficulties for effecting subject rights, liberties, interests, unequal application of land legal relations, equivocation of definition of judicial jurisdiction. Taking into account the subject of administrative law we have classified land legal relations, have defined the types of such relations members. The peculiarities of administrative acts of the subjects of public administration (subject of power authorities) approved in land legal relations have been determined. We have suggested the criteria of administrative jurisdiction and their application in the land legal relations. The two types of land legal relations have been pointed out: private (civil, domestic) land legal relations and public (criminal, criminal and procedural, criminal and executive, administrative) land legal relations.

It has been proved that land legal relations which belong to the administrative jurisdiction can be subject of legal proceeding only in case of presence of five criteria of administrative jurisdiction. At that the lack of at least one of the suggested criteria makes it impossible to come to the conclusion about the belonging of certain land legal relations to such jurisdiction.

Key words: land legal relations, administrative jurisdiction, private law, public law, Land Code of Ukraine, subject of public administration (subject of power authorities), administrative law, administrative land legal relations, public land law.

 

Introduction

The number of challenges for the national legal science and national administrative law and process in particular has increased considerably due to renovation of the legislation, approbation of numerous normative and legal acts. Moreover, at the moment exist some unsettled difficulties of law understanding which have mostly millenary history. Among them: relations of person and state, society and state, correlation between rights and law. Nevertheless, one of the main challenging problems for the physical (juridical) persons, subjects of public administration (subject of power authorities) and administrative courts still is the limitation of public and private law. Such delimitation has become more urgent due to coming into force the Civil Code of Ukraine as a code of private law, approbation of numerous administrative laws, preparation of Administrative procedural code of Ukraine and entering into force of the Administrative proceeding code of Ukraine [1, p. 7]. At the moment there are a lot of normative and legal acts which include norms of public as well as private law, such as Land code of Ukraine 2001, Economic code of Ukraine 2003, Law of Ukraine “About concessions” 1999, Law of Ukraine “About legal property regime of Armed Services of Ukraine” 1999, Law of Ukraine “About alienation of land plots, other real estate objects which are in the private property for social need or due to the reasons of social necessity” 2009, Law of Ukraine “About regulation of municipal construction activities” 2012, Law of Ukraine “About realization of state purchases” 2014.

Moreover special national legislation has been approved which stipulated the usage of the categories of public law as instruments of realization of public law. Thus the Law of Ukraine “About state and private partnership” 2010 defines the organizational and legal groundings of collaboration of state partners with private partners and main principles of state and public collaboration on the contractual basis [2].

Among the existing legal relations which mostly cause the conflict of interests, we can name the relations connected with ownership, use and application of the land. First of all, talking about such relations, it is necessary to underline that they constitute a subject of applications to the courts of general as well as constitutional jurisdiction.

As a result for due protection of subject rights, liberties and interests, law application and court practice, the certain definition of the nature of land legal relations has significant meaning.

About the quantity and difficulty of the administrative cases which appear from land legal relations one can find expressive information in the official statics, court practice of administrative judges, Supreme Court of Ukraine [3; 4, p. 93-115; 5]. In particular, the subject of consideration and resolution in 2011 by the Supreme Court of Ukraine were the administrative cases about the following: definition of actions as illegal and recognition of the property right for the land plot; definition of a resolution as illegal and its cancelation, recognition of omission illegal, obligations to perform some actions [4, p. 93-115]. The Supreme Court of Ukraine within 2010-2011 investigated among the others the court resolutions in the cases referred to the land use with the subjects: fiscal notifications – resolution, resolution [5, p. 190-208].

The local administrative courts during 2012, 2013 received correspondingly 14, 259 (4% of the total amount of administrative cases) and 16 207 (6% of the total amount of administrative cases) cases about the disputes on provision of stable development of inhabited communities and land use; the district administrative court during 2012 and 2013 received accordingly 6 465 (3% of the total amount of administrative cases) and 8 338 (4% of the total amount of administrative cases) of such cases [6].

Still unsettled stay the problems of delimitation of court jurisdiction for land legal relation and in spite of numerous explanations of the plenary session of Supreme court of Ukraine, Supreme specialized court of civil and criminal proceedings, Supreme economic court, Supreme administrative court of Ukraine.

Thus, it seem rather logical that public and legal disputed referred to land legal relations form one of the categories of the administrative cases which are often investigated not only in administrative courts but in the Supreme Court of Ukraine as well. The Constitution court of Ukraine expressed itself once about the application of land and connected herewith legislation [7].

Despite long time of application of land legislation by the subjects of public administration (subjects of power authorities), other members of land legal relations of the existing court practice, the physical and juridical persons of public and private law are not always able to execute implicitly their rights connected with land or land plot.

In such a way a person applied to Rivne municipal court with administrative suit to Rivne municipal council about the recognition as illegal of the acts of the subject of power authorities and obligation to execute certain actions [8].

Without having a possibility to concretize a desirable land plot, he indicated in his solicitation his agreement to receive any land plot of approximate square of up to 0,10 ha within Rivne city. In accordance herewith the graphic materials with a defined territory subject of desirable receipt were added to a solicitation. Nevertheless, contrary to the provision of the article 118 of the Land code of Ukraine, the Administration of land legal relations of the executive committee of Rivne municipal council he received a letter stating that the solicitation has not received satisfaction [8].

 

Objective circumstances of land legal relations existence

What are the reasons which stipulate such problems of execution of subjective rights, liberties, interests, unequal application of land legislation, ambiguity of definition of court jurisdiction and which means to overcome them can be offered? First of all, let’s point out the four principal circumstances which should be taken into account while trying to give appreciation to land legal relation, court protection of subjective rights, liberties and interests.

First of all, land legal relations are the subject of regulation of private and public legislation. Law application and court practice become more difficult due to presence in such relations of the institutes of public and private law. It is logical that the answers about the qualification of land legal relations can be found first of all in the theory of law, peculiarities of its division into public and private.

Secondly, all the participants of land legal relations without exception can execute public and private power authorities.

In the result of such execution of public and private authorities referred to a certain land plot except for land legal relations, can appear (form) simultaneously numerous and different according to their content legal relations, in particular criminal, criminal and procedural, criminal and executive, administrative, fiscal, civil, succession, economic, etc.

Thus, a person applied to District administrative court of Kyiv with a suit to a Principal administration of land resources of Kyiv municipal council about an obligation to prepare and issue a certificate of ownership to a land plot [9].

It has been defined that Kyiv municipal council on July 08, 2010 accepted a resolution No. 1204/4642 “About transfer to private ownership of a land plot for construction and maintenance of dwelling house, household buildings and constructions” [9].

With a letter dated October 9, 2010 Kyiv municipal council refused to prepare and issue a state certificate of ownership to a land plot and informed the plaintiff about arresting the stated land plot on the basis of a resolution of the Principal administration of Security office of Ukraine in Kyiv city on August 17, 2010 because it was recognized as material proof in a criminal case [9].

From the materials of the case it becomes obvious that according to a resolution of Kyiv municipal council dated July 08, 2010 a land plot for construction and maintenance of dwelling building, household buildings and constructions has been transferred into private ownership [9].

Thirdly, all without exception members of land legal relations use at their discretion the private and public (administrative) instruments according to the provisions of national legislation.

Fourthly, the existence of private and public (administrative) legislation which regulated the land legal relations stipulated the competence of norms of this legislation and as a result, unequal application of the same norms of material law by courts in the similar legal relations.

So, taking into account these circumstances, we have to understand that the problems of land legal relations, definition of a correspondent court jurisdiction, peculiarities of execution of powers by physical persons, juridical persons of public and private law, subjects of public administration (subjects of power authorities), unity of application and interpretation of land legislation, correctness of application of the norms of law reside first of all in the delimitation of public and private law, univocal identification of norms and content of activities of the mentioned members of legal relations, definition of the nature of legal relations and then the correctness of interpretation and application of public (administrative) legislation.

Scientifically grounded and correct division of land legal relations into types: private and public, will guarantee the correctness of choosing of court protection or recognition of subjective rights, liberties, interests, definition of court jurisdiction, equal application of national legislation and its sustainable development. First of all it has been defined that the urgent character should have improvement of public legal basis of regulation of land legal relation [10, p. 622].

There can be done a conclusion about the existence of such circumstances, in particular, from court practice, resolution of Supreme court of Ukraine which investigated the case under a suit of Simferopol district environmental prosecutor to Foros village council of Autonomous Republic of Crimea, the third persons were National university of bio resources and nature use of Ukraine, Crimea state agro technological university about the cancelation of the resolutions under the declaration of National university of bio resources and nature use of Ukraine about the reconsideration of the resolution of the Supreme administrative court [11; 5, p. 194-200].

In October 2008 the Prosecutor applied to court with a suit where he asked to cancel the paragraphs 2 and 3 of the resolution of the Council dated October 02, 2007 No. 15, by which it had been refused to a National university of bio resources and nature use of Ukraine in issue of permission of renewed formalization of a land plot with a square of 14,18 ha and approved the acts of the commission of Council executive committee dated July 06, 2007 No. 1 and dated October 01, 2007 No. 2; resolution of the Council dated March 21, 2008 No. 6, which terminated the right of permanent use of the stated land plot for Kalinin agricultural institute of Crimea [11; 5, p. 194-200].

District administrative court of Autonomous Republic of Crimea denied to comply with the suit with a resolution dated July 22, 2009. Sevastopol appellation administrative court with a resolution dated February 23, 1010 canceled the resolution of the first instance court and complied with the suit. The Supreme administrative court of Ukraine with the resolution dated October 26, 2010 canceled the resolution of the appellation court and left valid the resolution of the first instance court [11; 5, p. 194-200].

The Supreme court of Ukraine complied with a claim about revision of appeal decision of the Supreme administrative court of Ukraine. Among the arguments the Supreme Court of Ukraine in its resolution indicated that the foundations of property law which extend to the legal relations of right of use are regulated by the article 386 of the Civil Code of Ukraine; ownership right for demanding of property from foreign illegal ownership and protection of property rights from violations not connected with the privation of ownership, articles 387, 391 of the Code and the means of protection of rights for land plots – articles 152 of the Land code of Ukraine [11; 5, p. 194-200].

 

Subject of administrative law and land legal relations

It is obvious that social relations, which are regulated by the norms of administrative law, are diverse, structurally difficult and according to their content as well. All in all the highest level of such relations for administrative law is the contraposition of the unity of members of administrative legal relations which do not possess power authorities to a system of state mechanism of public power. The highest level of administrative and legal relations includes not only central problem of administrative law, provision of priority of rights and liberties of a person and citizens but also the guarantee of public service character of execution of the powers by the subjects of public administration (subjects of power authorities) referred to non-power subjects [12, p. 171, 173, 197].

We completely share the confirmation that the subject of modern administrative law form the legal relations which are formed: 1) in the process of state administration of economic, social and cultural, administrative and political spheres as well as execution of the powers of executive bodies delegated by state bodies by local bodies of self-government, social organizations and some other non-governmental institutions;

2) in the process of activities of the executive bodies and self-government bodies, their officials in terms of provision of execution and protection in the administrative order of the rights and liberties of the citizens, rendering to them as well as juridical persons of diverse administrative services; 3) in the process of internal organization and activities of the bodies of all state bodies, administrations of state enterprises, institutions and organizations as well due to passing state service or service in the local self-government bodies; 4) in the process of application of the methods of administrative enforcement including the administrative responsibility to physical and juridical persons [13, p. 87-88].

Legal relations which form the subject of modern administrative law appear referred to different objects, which include: 1) land; 2) land plots; 3) right for land plot (part 2, article 2 of the Land code of Ukraine) [14]; 4) administrative act.

If we try to summarize the land legal relations which form the subject of administrative law while choosing as a criterion for systematization – the subject of relations, it becomes obvious the division of land legal relations into such types:

1) relations between physical, juridical persons of private and public law and subjects of public administration (subjects of power authorities);

2) formalized relations foreseen by the legislation and non-formalized relations (relations of collaboration, mutual relations) between the subjects of public administration (subjects of power authorities);

3) relations between private persons – physical, juridical private persons.

Let’s analyze in details these three groups.

1) The relations between physical, juridical persons of private and public law and subjects of public administration (subjects of power authorities).

Such type of relations has two subgroups:

1.1. relations which appears on the initiative of physical, juridical persons of private and public law as a result of their execution of administrative powers on the basis of administrative legislation (for example, on the basis of the Law of Ukraine “About applications of the citizens”) or administrative norms (for example, the administrative norms of Land code of Ukraine, except for the norms which include civil norms).

Such relations regulated by administrative norms can be considered those which appear as a result of execution of administrative powers stipulated by the article 160 of the Land code of Ukraine, the parties of land (administrative) dispute have the right to get acquainted with the materials of this dispute, make extracts from it, participate in examination of land dispute, present documents and other proves, present claims, give oral and written explanations and proves of other party, receive a copy of resolution referred to land dispute and in case of lack of agreement – to appeal it [14];

1.2. relations which appeared on the initiative of the subjects of public administration (subjects of power authorities) in the result of their executions of an obligation assumed by one of the subjects under the legislation. Such obligations is executed on the basis of administrative legislation or administrative norms on the form of one of the types of administrative activity of the subject of public administration (subject of power authorities): 1) state administration (execution of the functions of state administration – prediction, planning, organization, accounting, control) and regulation; 2) conclusion and execution of administrative agreements; 3) rendering of administrative services; 4) application of the means of administrative enforcement; 5) execution of internal and external organizational measures [15, p. 99-100].Thus, state control (function of state administration) over the use and protection of land is executed by a central body of executive power which realizes the state policy in the sphere of execution of state control (supervision) in the agricultural and industrial complex (part 1, articles 88 of the Land code of Ukraine) [14].

It is typical that for the physical and juridical persons of public and private law and subjects of public administration (subject of power authorities) in such legal relations exist common juridical obligations; connected with the numerous amount of physical, juridical persons by the subjects of public administration (subjects of power authorities) under the procedure stipulated by the law and within the scope of administrative opinion – shall be approved the administrative acts.

So the relations between physical, juridical persons and the subjects of public administration (subject of power authorities) of both subgroups have exterior expressive character, can appear with the participation of undefined and unlimited number of physical and juridical persons.

Exactly in the relations between physical, juridical persons and subjects of public administration (subject of power authorities) takes place the violation of rights, liberties and interests of these persons. Such relations form the subject of part 1, article 2 of the Code of administrative court proceeding of Ukraine, the task of administrative court proceeding is the protection of rights, liberties and interests of juridical persons in the area of public legal relations from the violations of the state power bodies, self-government bodies, their official and other subjects during execution of power administrative functions on the basis of legislation in particular on execution of delegated powers by means of justifies, impartial and in time examination of administrative cases [16].

It is clear and not less important that in the part 1 of the article 2 of the Code of administrative court proceeding of the Ukraine the legislator made an important for the practice of court protection of the subject public rights, liberties and interests supposition that only those public and legal relations belongs to the jurisdiction of administrative courts which suffered from the violation of subjective rights, liberties and interest.

If public and legal relations took place but 1) no juridical consequences for their members happened and 2) no violation of subjective public rights, such relations cannot be the subject of revision in the administrative court. It is also a matter of principle that this conclusion about the presence of juridical consequences and violation extends not only on land legal relations but with no exceptions to other numerous administrative and legal relations, included into administrative jurisdiction.

So, the relations between physical, juridical and subjects of public administration (subject of power authorities), in which for their members appear common juridical obligations where the subject of public administration (subjects of power authorities) approve administrative acts referred to physical, juridical persons – one of the criteria to define the jurisdiction of administrative courts. Such relations are the subject of revision in the administrative courts.

Let’s underline that in the stated type of legal relations – the relations between physical, private juridical persons and subjects of public administration (subject of power authorities) – actually exist another two subtypes of public land legal relations, as follows:

- public legal relations referred to the land of municipal property of general and special use which are a public property – for example, the land of general use of populated areas (squares, streets, passages, ways, riverbanks, beaches, parks, green zones, boulevards, cementaries, places of deactivation and utilization of rubbish, etc.), land plots, which are used for provision of activity of the self-government bodies (subp. a, d part 4, article 83 of the Land code of Ukraine dated October 25, 2001) [14]. Let’s indicate that such legal relations can be formed between physical persons, juridical persons of public, private law and without participation of the subjects of public administration (subjects of power authorities);

- public legal relations connected with the formation of land plot as an object of civil rights and further formation of the property right for land plot, the right of land plot use – state registration of land plot in the State land registry, state registration of material rights for land plot (article 791 of the Land Code of Ukraine) [14]. The peculiarity of this subgroup of land legal relations is that they in their entity form administrative procedures which draw special subjects of public administration (subjects of power authorities).

The classification of land legal relations between physical, juridical persons of public and private law and subjects of public administration (subjects of power authorities) for the subtypes permits to form an opinion about the types and peculiarities of administrative procedures of performance of powers in the sphere of land legal relations, approval and execution of administrative acts.

2) Formalized relations, foreseen by the legislation and not formalized relations (relations of collaboration, common relations) between the subjects of public administration (subjects of power authorities) not stipulated but not prohibited by the legislation as well. As it is indicated the collaboration reflects the processes of influence or common influence of one subjects of power authorities on the other, their mutual conditionality which aims to increase the efficiency and result rating of functioning of the last ones as a unique social machine [17, p. 72, 73].

Similar to a previous type of relations, the relations between physical, juridical persons of private and public law and subjects of public administration (subjects of power authorities) – formalized relations stipulated by the legislation and not formalized relations (relations of collaboration, common relations) between the subjects of public administration (subjects of power authorities) are characterized by content traits.

First of all, they have as a rule rather interior character, in other words they appear, develop and finish only inside public power and do not include the rights, liberties and interests of physical persons, rights and interests of juridical persons of private and public law.

Secondly, there are two subtypes of formalized and not formalized relations between the subjects of public administration (subjects of power authorities):

a) “internal” formalized and not formalized relations are the relations inside one subject of the public administration, in particular, the relations of organization and keeping different records (registers), so keeping and administration of State land register are provided by central body of executive power which realizes state policy in the sphere of land relations (State agency of land resources of Ukraine) (part 1 of article 6 of the Law of Ukraine “About State land register” 2011) [18; 19];

b) “exterior” formalized and not formalized relations. This type of relations can be brightly demonstrated on the example of the provisions of the Law of Ukraine “About Cabinet of Ministers of Ukraine”, in the article 38 hereof it is stipulated that the Cabinet of Ministers of Ukraine according to the Constitution and law of Ukraine collaborates with the National Bank of Ukraine, other state bodies on the issues which belong to its competence. The Cabinet of Ministers of Ukraine directs the activity of the bodies of executive power on the contribution of effective functioning and development of self-government, provides collaboration of central and local bodies of executive power with the bodies of local self-government in resolution of the cases of local importance, in particular, economic, social and cultural development of the relevant administrative and territory unities [20].

Formalized and not formalized relations between the subjects of public administration (subjects of power authorities) stipulated by the par. 3, 4 of the article 17 of the Code of Administrative legal proceeding are the disputes between the subjects of power authorities referred to the realization of their competence in the administration area, in particular, the delegated powers and disputes which arise due to conclusion, fulfillment, suspension, cancelation or recognition as void of the administrative agreements.

Thirdly, for the juridical, physical persons of private and public law which are not the members of such relations, no juridical consecuences appear, it is not necessary for them to execute the juridical obligations. The administrative acts approved by the subjects of public administration (subjects of power authorities) within the formalized relations, not formalized relation (for instance, the order on inspection organization, resolution of the termination of physical persons applications receipt) have no influence on the juridical, physical persons.

So, the lack of extension of such formalized and not formalized relations on the rights, liberties, interests of physical persons, rights, interests of juridical persons of private and public law stipulates the absence of the supposition about violation of theses rights, libertites and interests what is declared in the part 1 of the article 2 of the Code of administrative proceeding of Ukraine. And that is why formalized and not formalized relations which are not the relation of competence or administrative and agreement character (par. 3, 4, part 2 article 17 of the Code of administrative proceeding of Ukraine) cannot become a subject of jurisdiction of the administrative courts.

3) Relations between private persons – physical, juridical private persons. Such relations are foreseen by the valid national legislation, in particular articles 103-109 of the Land code of Ukraine, article 39 of the Law of Ukraine “On regulation of municipal construction activities”, article 17 of the Code of administrative proceeding of Ukraine.

The owner of land plot has a right to demand from the owner of a near-by land plot assistance in the installation of the solid borders as well as renovation of the borders signes in case if they disappeares or become inexpressive (part 1 of the article 106 of the Land code of Ukraine) [14].

In cases when the near-by located land plots are divided by a vegetation line, path, ditch, canal, wall, fence or another construction, the owners of these plots shall have the rights of their mutual use if the exterior signs do not indicate that the construction belongs only to the one of the neighbours (part 1 article 108 of the Land code of Ukraine) [14].

According to the statement in part 12 article 39 of the Law of Ukraine “On regulation of the municipal construction activities” the customer is obliged to transfer a finished in terms of construction and connected to all the engineer communications house which was constructed using the cost of physical and juridical persons, to a community of owners or owner or to a operation organization within one hundred twenty calendar days upon it acceptance into operation [21].

The jurisdiction of administrative courts extends to public legal disputes, in particular disputes of physical or juridical persons with manager of public information connected with appealing his decisions, actions or lack of action referred to access to public information (par. 7 part 2 art.17 of the Code of administrative court proceeding of Ukraine) [16].

So this third type of land relations – legal relations between private persons appear due to:

- land in private property (articles 103-109 of the Land code of Ukraine) [14];

- land in communal property of general and special use, which is a public property, in particular the land of common use in populated areas (squares, street, passages, ways, banks, beaches, parks, green zones, boulevard, cementaries, places of desactivation and utilization of waste, etc.) (par. a part 4 of the article 83 of the Land code of Ukraine) [14].

 

Participants of land legal relationships

However, it would not be enough just to classify the land legal relationships, one should describe their numerous participants that differ in their business legal structure, tasks and powers.

Types of participants of land legal relationships can be represented as follows:

1) individuals:

1.1. private individuals - citizens of Ukraine, foreigners and stateless persons who exercise powers with regard to the land on the basis of the Articles 13, 14, 26 of the Constitution of Ukraine, the Land Code of Ukraine;

1.2. individuals that undergo public service (public individuals) - persons that hold political positions in government bodies, civil servants, local government officials (p. 15 Art. 3 of the Code of Administrative legal proceeding);

1.3. individuals - representatives of self-governing professions – court appointed trustee, private notary, appraising officer for expert pecuniary valuation of land property, developer of land management documentation;

2) legal entities:

2.1. legal persons under private law - commercial bank, private enterprise;

2.2. legal entities under public law - public authorities, public bodies, authorities of the Autonomous Republic of Crimea, the National Bank of Ukraine, local government bodies, state and municipal enterprises, institutions, organizations, foundations, public law (p. 7 part 1 Art. 3, Article 48 of the Code of Administrative legal proceeding;

3) public subjects without corporate status - structural formations of legal entities under public law - for example, the Department of City Construction and Land Relations of the City Council, Office of the State Agency of Land Resources of Ukraine in the district, sector for the protection of the environment, etc.

It is significant that the subjects, different in their business legal structure and purpose of the operation, that were not considered the standard subjects of the public administration (power entities) are acceding to the land legal relationships.

Thus, the Plenum of the Supreme Administrative Court Procedure of Ukraine clarified that under the article 9 of the Law of Ukraine "On state registration of real rights on immovable property and their limitations" No.1952-IV dated July 1, 2004, the state registrar is a public servant, except when the state registrar is a notary as a special subject entrusted with (delegated) the functions of the state registrar of immovable property rights [22].

According to the second part of the article 30 of this Law, the acts or omissions of the state registrar, cadastral registrar, notary, state enforcement officer can be appealed in court. The courts should bear in mind that the actions should also imply the decisions of the above power entities for registration. The disputes that arise in these relationships shall be considered in administrative proceedings. [22]

Therefore, due to the permanent involvement of the new participants in the public legal relations, including land legal relationships, firstly, it is important to understand that their subject can in prospect be any physical person or legal entity, entrusted with public (administrative) powers by the state.

These findings are manifestly supported by the provisions, in particular, the Laws of Ukraine "On Personal Data Protection" and "On access to public information." For example, the Art. 12, 13 of the Law of Ukraine "On Access to Public Information" says that the subjects of relations in the field of access to public information, in particular, can be [23]:

1) requestors of information - individuals, legal entities, citizens' associations without corporate status, except the power entities;

2) data owners:

2.1. legal entities financed by the state and local budgets, the budget of the Autonomous Republic of Crimea;

2.2. economic entities;

3) a structural unit or a person responsible for the requests for information of the data owners.

It is also important to note that the citizens, legal entities, local government bodies and public authorities are defined the subjects of land legal relationships in the part 2 Art.2 of the Land Code of Ukraine.

However, as it turned out, such a list of the subjects of land legal relationships only partially covers the three groups of above participants of land legal relationships.

Thus, an analysis of participants of land legal relationships gives us a reason to talk about the need to clarify (amend) the list of the participants of such relations with new legal entities, in particular, in the Land Code of Ukraine, the Code of Administrative legal proceeding.

It should be also made clear that the perspective of the total of existing participants of land legal relationships and their recognition as the bearers of public authority, allows the individuals and legal entities to apply freely for the specialized judicial protection of their public rights, freedom of interests, stipulated by the Constitution of Ukraine (Articles 8, 55, 124) and the Code of Administrative legal proceeding.

The recognition of individuals, legal entities, public entities as the participants of public land legal relationships allows to challenge their decisions, actions, omissions in the administrative court.

However, the legislative requirement to the public body as to the compulsory participant of the public land legal relationships (public legal relations) (part 1 Art.. 2 of the Code of Administrative legal proceeding) excludes the possibility or imbrangles the involvement by the defendant in administrative case of the participants of land legal relationships, which are not by their nature the power entities - private individuals, representatives of self-governing professions, legal entities under private law.

The involvement of the participants in the land legal relationships is a result of their need for the implementation of the law (interest) or performance of legal obligation with regard to the land, land plot or administrative act adopted by public administration body (power entity) with respect to the land, the land plot. Thus, the land, the land plot, administrative acts of public administration bodies (power entities) are approved with regard to the land, the land plot, and the omissions of these entities are the subject of land legal relationships.

 

Object of land legal relationships

The object of land legal relationships, which fall under the jurisdiction of the administrative courts are the administrative acts of public administration bodies (power entities) - decisions, orders, judgments, resolutions. The concept of "administrative act" in the national law implies the decisions, orders, judgments, resolutions of the power entity, provided for in the part 2 Art. 2 of the Code of Administrative legal proceeding.

The category of "administrative act" is also used in the Land Code of Ukraine (Articles 111, 155).

However, the administrative acts of the public administration bodies (power entities) shall be clearly distinguished from their other acts, in particular – inspection act, act of acceptance and transfer of land plot, state act of land ownership, state act on the boundaries of administrative and territorial units of Ukraine, verification act.

Administrative act implies any order, decision or other authoritative event aimed at resolving a particular case in the area of public law by the public administration body (power entity), and which has direct external legal consequences (§ 35 "On Administrative Procedure" of the Law of the Federal Republic of Germany) [24, p. 54].

Administrative act is the main legal form of public administration, which is the expression of will of the administrative authority to authorize the administrative case, aimed at the creation, amendment, or termination of rights and duties of particular individuals or legal entities. Administrative act completes the review and solution of the administrative case. The defining features of the administrative act is its individuality (specificity) and external action of the act [25, p. 32, 33; 26, p. 279-283].

It is obvious that the specified features of the administrative acts – expression of will of the administrative authority to authorize the administrative case, occurrence, amendment or termination of rights and duties of particular individuals or legal entities, the completion of consideration and solution of the administrative case with the administrative act, the external action of the act - are not incident to the inspection act, the act of acceptance and transfer of land plot, the state act on the land ownership, the state act on the boundaries of administrative and territorial units of Ukraine, the verification act. All of them are just a way of fixing certain circumstances, confirming the fact - for example, the right to property, the boundaries of the administrative and territorial unit.

Assessing the above acts, one should proceed from their nature. It should be emphasized that despite their names, the inspection certificate, act of acceptance and transfer of land plot, the state act of the land ownership, the state act on the boundaries of administrative and territorial units of Ukraine, the verification act, are not the classic administrative act, which contains mandatory regulations addressed to individulas (legal persons), generate, modify or terminate the jural relations under administrative law.

Accordingly, the inspection certificate, act of acceptance and transfer of land plot, the state act of the land ownership, the state act on the boundaries of administrative and territorial units of Ukraine, the verification act, - 1) are not the decisions, acts, omissions which can be appealed to the Administrative Court within the meaning of Art. 2 of the Code of Administrative Court of Ukraine

2) administrative courts should be denied in sustaining plaintiff`s claims in respect of these acts, and

3) cancellation or invalidation of such acts of the defendant – the power entity in whole or their part on the basis of p. 1 p. 4 Art. 105, p. 1 p. 2 Art. 162 of the Code of Administrative legal proceeding, such that do not create any legal consequences, and that is why they are legally unjustified.

In addition, the land, land plots can also be in the public (administrative) relations as public property with a specific legal and administrative regime of use. Such a regime, provided for in the Land Code of Ukraine, the Law of Ukraine "On legal status of the property in the Armed Forces of Ukraine", the Law of Ukraine "On alienation of land and other real estate objects situated on the land, privately owned, for public purposes, or by virtue of social need", etc.

Thus, the objects of land legal relationships are: 1) administrative acts of public administration bodies (power entities) and 2) land, 3) land plots as public property.

It is significant that the object of public (public land) relations is used in the Code of Administrative Procedure of Ukraine as 1) a criteria for determining the administrative jurisdiction (p. 1 Art. 2 of the Code of Administrative legal proceeding), and 2) a category which defines the subject of the claim and the method of judicial protection (p. 4 Art. 105, 162 of the Code of Administrative legal proceeding).

Therefore, a proper scientific evaluation and unambiguous definition of such object allows to make a correct conclusion:

1) the proper way to protect public rights, freedoms and interests. As you know, two such methods are provided for in the General administrative law and national legislation: the administrative appeal and judicial protection. Thus, p. 1, 2 Art. 158 of the Land Code of Ukraine stipulates that land disputes are resolved by the courts, local authorities and the central executive body implementing the state policy in the sphere of land relations. Solely and exclusively the court resolves the disputes over land ownership, use and disposal of land owned by the individuals and legal entities, as well as the disputes over the demarcation of territories of villages, towns, cities, districts and regions [14];

2) type of court jurisdiction, which applies to specific land relations;

3) strategy and tactics of behavior of persons involved in the case, the Administrative Court;

4) subject, cause and scope of a lawsuit filed in a court in connection with a dispute concerning land relations;

5) method of judicial protection, which is advisable for protection of public rights, freedoms and interests;

6) allocation of rights and duties between the participants of land relations;

7) content of the judgment on the rights and duties of the participants of the disputed land relations.

Criteria of administrative jurisdiction and their application in land relations

Land legal relationships evidence not just the existence of the land law, which is now considered to be a complex branch of law [27, p. 27; 10, p. 640, 641], but the public land law, which is essentially a full-fledged industry of a specific administrative law.

One can assess land legal relationships as a subject of jurisdiction of the administrative courts in case of a total of five criteria. As we have previously stated [28], these criteria are:

1) public legal (administrative) relations;

2) public administration body (power entity) or an individual, a legal entity under public, private law, which have the administrative authority;

3) implementation of a certain type of administrative activities by public administration body (power entity) – a) state administration (implementation of government functions - forecasting, planning, organization, accounting, control) and regulation; b) establishing and implementing administrative contracts; c) provision of administrative services; c) application of administrative coercion; d) implementation of internal and external organizational activities [15, p. 99-100];

4) administrative law, which regulates the controversial public legal (administrative) relations;

5) implementation of administrative law (debate about administrative law).

Conclusions

Thus, we can draw the following conclusions with respect to the legal land relations:

1) there are two types of land legal relationships - private (civil and commercial) land relations and public (criminal, criminal procedural, criminal executive, administrative) land legal relationships;

2) rationale for essentiality and separation of public and private land legal relationships has: scientific, educational, instructional, practical value;

3) public land legal relationships include: 1) administrative land relations, 2) land relations, which are the subject of legal regulation of criminal law, criminal procedural, criminal executive legislation. Therefore, for the correct identification of the jurisdiction of courts, any land legal relationships in the first place should be divided into: a) public and private, and b) public – into administrative (administrative land, tax, financial, environmental) and other public legal relations (criminal, criminal procedural, criminal executive);

4) there are the following types of administrative land legal relationships:

- relationship between individuals, legal entities under public and private law and public administration bodies (power entities);

- formalized relations defined by law and unformalized relations (relations of interaction, mutual relations) between public administration bodies (power entities);

- relations between private individuals - individuals and legal entities;

5) land legal relationships are governed both by administrative law, and the law, which includes the norms of public (administrative) and private law. A striking example of the law, which combines both public and private norms is the Land Code of Ukraine. The Sections I, II, V-VIII of the Land Code of Ukraine contain the rules of administrative law, and the Sections III, IV contain the rules of private law. However, public land relations are formed solely as a result of the regulatory impact of the norms of public law.

Consequently, the Land Code of Ukraine is primarily the administrative law which contains some rules of private (civil) law. We can only wonder whether it is feasible to combine the norms of public and private (civil) law in one law, in case: they have a different purpose, regulate distinct relations, and some of these norms - the norms of civil law - are already provided for in the Civil Code Ukraine 2003?

The same rules of the Land Code of Ukraine, which are public can be classified into the following types:

a) norms that perpetuate administrative authority of public administration bodies (power entities) - provision of permits, planning, control, monitoring and accounting;

b) norms on administrative and legal regime of the land;

c) norms that regulate the procedures for exercising of powers in relation to the land and land plots by the individuals and legal entities under public and private law, public administration bodies (power entities).

With the adoption of the long-awaited Administrative Procedural Code of Ukraine, the procedural rules shall be respectively excluded from the Land Code of Ukraine. So there is every reason to talk about the future review and update of the administrative-procedural and land law;

6) it is clear that in contrast to the private (civil, economic land relations) the administrative land relations fall within the jurisdiction of the administrative courts, refer to the subject of the administrative law;

7) national legislation provides for the numerous participants of the land legal relations, who generate heterogeneous relationships by exercising their public and private powers. Such relationships - private land relations, public land relations are interconnected. Such relations sequentially or simultaneously arise, develop, are replaced with others; form complex land legal relations. Given the prevalence of heterogeneous, complex land legal relations, the clear demarcation of land legal relations into the private and public relations is fundamental to the parties involved, and the courts of general jurisdiction;

8) participants of the administrative land legal relations can be represented as follows:

- individuals (private individuals, individuals who pass public service (public individuals), individuals - representatives of self-governing professions);

- legal entities (legal entities under private law, legal entities under public law);

- public subjects without corporate status (structural formations of legal entities under public law);

9) administrative land legal relations, in conjunction with the relevant administrative law is a factor in the formation of the Special administrative law - Public Land Law;

10) all classical concepts, categories and institutions of the General Administrative Law - the public interest, public administration, principles and sources of administrative law, administrative procedure, administrative discretion, regulations, administrative provisions, administrative contracts, plans, public property, public succession, extrajudicial protection of rights, freedoms and interests of individuals are intrinsic to administrative land legal relations;

11) in the land legal relations for implementation of the legal rights, freedoms and interests, exercise of public authority, the designated parties to such relationships apply the administrative acts, and such activity is considered to be administrative procedural;

12) the object of the land legal relations, which fall under the jurisdiction of the administrative courts are: a) administrative acts of public administration bodies (power entities) - decisions, orders, judgments, resolutions; b) land and c) land plots as public property;

13) one can draw up the conclusion on the land legal relations, which relate to the administrative jurisdiction only in presence of a set of five criteria of administrative jurisdiction. Therefore, the absence of at least one of the proposed criteria makes it absolutely impossible to make a conclusion on affiliation of certain of land legal relations with such jurisdiction.

 

Бевзенко Володимир. Земельні правовідносини як предмет юрисдикції адміністративних судів.

Зроблено висновок, що земельні правовідносини нині є предметом регулювання і приватного, і публічного законодавства, чим обумовлено складнощі здійснення субʼєктивних прав, свобод, інтересів, неоднакове застосування земельного законодавства, неоднозначність визначення судової юрисдикції. З урахуванням предмету адміністративного права класифіковано земельні правовідносини, визначено види учасників таких відносин. Визначено особливості адміністративних актів субʼєктів публічної адміністрації (субʼєктів владних повноважень), ухвалених у земельних правовідносинах. Запропоновано критерії адміністративної юрисдикції та їх застосування у земельних правовідносинах. Вказується на два види земельних правовідносин – приватні (цивільні, господарські) земельні правовідносини та публічні (кримінальні, кримінально-процесуальні, кримінально-виконавчі, адміністративні) земельні правовідносини.

Доведено, що про земельні правовідносини, котрі належать до адміністративної юрисдикції, можна судити лише за наявної сукупності п’яти критеріїв адміністративної юрисдикції. Натомість, відсутність, принаймні одного із запропонованих критеріїв взагалі унеможливлює висновок про належність певних земельних правовідносин до такої юрисдикції.

Ключові слова: земельні правовідносини, адміністративна юрисдикція, приватне право, публічне право, Земельний кодекс України, субʼєкт публічної адміністрації (суб’єкт владних повноважень), адміністративне право, адміністративні земельні правовідносини, публічне земельне право.

Бевзенко Владимир. Земельные правоотношения как предмет юрисдикции административных судов.

Сделан вывод, что земельные правоотношения в современных условиях есть предметом регулирования и частного, и публичного законодательства, чем обусловлены сложности осуществления субъективных прав, свобод, интересов, неодинаковое применение земельного законодательства, неоднозначность определения судебной юрисдикции. С учетом предмета административного права классифицировано земельные правоотношения, определено виды участников таких отношений. Определено особенности административных актов субъектов публичной администрации (субъектов властных полномочий), принятых в земельных правоотношениях. Предложены критерии административной юрисдикции и их применение в земельных правоотношениях. Указывается на два вида земельных правоотношений – частные (гражданские, хозяйственные) земельные правоотношения и публичные (уголовные, уголовно-процессуальные, уголовно-исполнительные, административные) земельные правоотношения.

Доказано, что о земельных правоотношениях, которые принадлежат к административной юрисдикции, можно судить только при наличии совокупности пяти критериев административной юрисдикции. В свою очередь, отсутствие, хотя бы одного критерия из предложенных критериев вообще исключает вывод о принадлежности определенных земельных правоотношениях к такой юрисдикции.

Ключевые слова: земельные правоотношения, административная юрисдикция, частное право, публичное право, Земельный кодекс Украины, субъект публичной администрации (субъект властных полномочий), административное право, административные земельные правоотношения, публичное земельное право.

 

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