CC BY
14UDC 349.442
JUSTIFICATION OF DEVELOPMENT AND ADOPTION OF CONSTRUCTION CODE (LEGAL MONITORING RESULTS) IN THE REPUBLIC OF KAZAKHSTAN
Kazbayeva Assel Gabidenovna
Leading Research Fellow at the Center for legal monitoring of the Legislation Institute of the Republic of Kazakhstan, State Institution, Astana, Republic of Kazakhstan; e-mail: a.kazbaeva@adilet.gov. kz
Keywords: legislation; codification; architecture; urban development; construction.
Funding: Fundamental scientifically-applied research.
Abstract. In Kazakhstan, required prerequisites for creation of the codified act in construction area appeared. It is worth mentioning that the construction legislation is a set of different types of the public relations, closely interrelated. Basis for the construction legislation codification is the Law of the Republic of Kazakhstan dated July 16, 2001, No. 242 «On Architectural, Urban and Construction Activities in the Republic of Kazakhstan». Therefore the main difference of the construction legislation from other legislation branches is a closest interrelation with regulating technical documents. A large number of bylaws and technical documentation complicate the application of construction legislation. That adoption of the new codified act would solve a problem of a significant number of bylaws and technical documentation. Construction legislation has to follow the principles of publicity, transparency and openness, involvement of the population to discussion of significant issues. In this regard, in the construction legislation, the provisions devoted to public hearings on general urban plans and settlements are required. One more important aspect to be reflected within the construction code, in our opinion, is the new mechanism of construction works tender management. Currently, construction company is selected via state procurement where the main criteria of supplier selection is the lowest price. Meanwhile low prices, offered by unscrupulous construction companies, are the main reason of low-quality construction facilities.
КАЗАХСТАН РЕСПУБЛИКАСЫНДА К^РЫЛЫС КОДЕКС1Н ЭЗ1РЛЕУ МЕН КАБЫЛДАУДЬЩ НЕГ1ЗДЕМЕС1 (К¥КЬЩТЫК МОНИТОРИНГТЩ НЭТИЖЕЛЕР1)
Эсел Габиденцызы Казбаева
Казацстан Республикасы Зацнама институтыныц
Куцыцтыц мониторинг орталыгыныц жетекшi гылыми v;bi3MemKepi,
зац гылымдарыныц кандидаты, Астана ц., Казахстан Республикасы;
e-mail: a.kazbaeva@adilet.gov.kz
Tyüíh свздер: зацнама; кодификация; сэулет; цала цурылысы; цурылыс.
Царжътандыру: Iргeлi жэне гылыми-цолданбалы зерттеулери
Аннотация. Казацстанда цурылыс саласында кодификацияланган акт жасауга цажетти алгышарттар цурылды. Алайда цурылыс зацнамасы, бир-биримен тыгыз байланы-сты эртYрлi цогамдыц цатынастардыц жиынтыгы болып табылады. Бундай цатынастар дербес цуцыцтыцрeттeудi цажет eтeдi жэне тутас цурылымреттде царастырылады. Курылыс зацнамасын кодификациялаудыц нeгiзi «Казацстан Республикасындагы сэулет, цала цурылысы жэне цурылыс цызмeтi туралы» Казацстан Республикасыныц 2001 жылгы 16 шiлдeдeгi № 242 Зацы болып табылады. Курылыс зацнамасыныц цуцыцтыц басца сала-ларынан нeгiзгi айырмашылыгы - нормативтж техникалыц цужаттармен тыгыз байланы-сы. Зацга тэуeлдi акттер мен техникалыц цужаттардыц квптiгi цурылыс зацнамасыныц цолданылуынциындатады.Жацакодификациялыцакттщ цабылдануы, зацга тэуeлдiактiлeр мен техникалыц цужаттар саныныц квптiгi мэселест шешер eдi. Курылыс зацнамасы кепшшктж, жариялылыц жэне ашыцтыц цагидаларын устануга, мацызды мэсeлeлeрдi талцылауга халыцты араластыруга мiндeттi. Сондыцтан цурылыс зацнамасында цала мен eлдi мекендердщ басты жоспарларыныц жобалары бойынша кепшшк тыцдауларга арналган ережелер цажет^здщ ойымызша цурылыс кодекс шецбертде керсетыуге тшс
таги 6ip мацызды мэселе, ол цурылыс жумыстарын ЖYpгiзу конкурсын уйымдастыру мен вттзудщ жаца механизмi.K,азipгi тацда цурылыс жумыстары ушш уйымды тацдау мемлекеттж сатып алу арцылы ЖYpгiзiледi, онда жеттзушш тацдаудыц негiзгi белгiсi болып ец тeменгi бага табылады.Ырац жосыцсыз цурылыс компаниялар усынатын темен багалар, сапасыз цурылыс объектшерт тапсырудыц негiзгi себебi болып келед1
ОБОСНОВАНИЕ РАЗРАБОТКИ И ПРИНЯТИЯ СТРОИТЕЛЬНОГО КОДЕКСА В РЕСПУБЛИКЕ КАЗАХСТАН (РЕЗУЛЬТАТЫ ПРАВОВОГО МОНИТОРИНГА)
Казбаева Асель Габиденовна
Ведущий научный сотрудник Центра правового мониторинга Института законодательства Республики Казахстан, кандидат юридических наук, г. Астана, Республика Казахстан; e-mail: a.kazbaeva@adilet.gov. kz
Ключевые слова: законодательство; кодификация; архитектура; градостроительство; строительство.
Финансирование: Фундаментальное научно-прикладное исследование.
Аннотация. В Казахстане сложились необходимые предпосылки для создания кодифицированного акта в сфере строительства. Между тем строительное законодательство является совокупностью различных видов общественных отношений, которые тесно взаимосвязаны между собой. Такие отношения требуют самостоятельного правового регулирования и рассматриваются в качестве целостного образования. Основой для кодификации строительного законодательства является Закон Республики Казахстан от 16 июля 2001 года № 242 «Об архитектурной, градостроительной и строительной деятельности в Республике Казахстан». Основное отличие строительного законодательства от других отраслей права - это теснейшая взаимосвязь с нормативными техническими документами. Большое количество подзаконных актов и технических документов, затрудняет применение строительного законодательства. Принятие нового кодифицированного акта решило бы проблему значительного количества подзаконных актов и технических документов. Строительное законодательство должно следовать принципам публичности, гласности и открытости, привлечения населения к обсуждению значимых вопросов. В этой связи необходимы положения в строительном законодательстве посвященных публичным слушаньям по проектам генеральных планов городов и населенных пунктов. Еще одним немаловажным моментом, который по-нашему мнению должен быть отражен в рамках строительного кодекса это новый механизм организации и проведения конкурса на проведение строительных работ. В настоящий момент выбор организации для строительных работ осуществляются через государственные закупки, где основным критерием выбора поставщика выступает наименьшая цена. Между тем достаточно низкие цены, которые могут предложить недобросовестные строительные компании являются основной причиной сдачи некачественных строительных объектов.
The concept of legal policy in the Republic of Kazakhstan for the period from 2010 to 2020, approved by the Presidential decree of the Republic of Kazakhstan dated August 24th, 2009, No. 858 states that for the purpose of legislation efficiency increase, it is required to continue working on systematization of the current legislation, further consolidation by legislation branches; to release it from obsolete and duplicative rules, to complete gaps in legal regulation, to eliminate internal contradictions in the law in force, to minimize referential regulations in laws, and to expand practice of directly applicable laws adoption within issues, where legislative instruments, in accordance
with the Constitution, can be adopted1.
Systematization of the current legislation of the Republic of Kazakhstan in architecture, urban development and construction (hereinafter - construction legislation), as a process of unification of laws and regulations by both external and internal processing, is one of the directions to implement the specified tasks [1]. Systematization of the construction legislation will enable to implement priority national projects, to create conditions for regulation and development of all urban construction activities, and to strengthen legality in the area of architectural and urban construction relations through identification of legal issues in this
1 Concept of legal policy in the Republic of Kazakhstan for the period from 2010 to 2020, approved by the Presidential decree of the Republic of Kazakhstan dated August 24th, 2009, No. 858
Legal monitoring \
area, which allow sustainable development of areas [2; 3].
As regard to codification in Kazakhstan, it is worth to note that codification is performed on the basis of conventional codification standards developed in the former Soviet Union among countries of the Commonwealth of Independent States; therefore codification is promoted by implementation of generally recognized principles and international rules into a national law. Our state is not an exception to the rules; therefore it mostly performs codification by legislation branches. Thus, Article 8 of the Law of the Republic of Kazakhstan «On Legal act» stipulates creation of the codified acts for eighteen groups of homogeneous public relations unification, and Article 9 fixes the complex public relations list, where consolidated laws are oriented for their regulation; architecture, urban development and construction appears to be one of them.2
In the Republic of Kazakhstan, there are some examples of the specialized codified acts adoption: Land Code of RK dated June 20, 2003, No. 442, Water Code of RK dated July 9, 2003, No. 481, Code of RK «On Customs Affairs in the Republic of Kazakhstan» dated June 30, 2010, No. 296-IV,etc. In juridical literature, extended integrated legislation branches list, regulating such public relations appeared as a consequence of these codifications. Thus, the formation of tax law, land law, environmental law, customs law and medical law as independent branches in the legal system is proved. Development of certain areas of the public relations regulated by a large number of legal provisions of various
legislation branches with internal structure in unique system promoted the appearance of new legislation branches. Certainly, various branches (civil, administrative, etc.) will be represented in the construction legislation, but this will not influence on quality characteristics of construction regulation.
Presently, in Kazakhstan, required prerequisites for creation of the codified act in construction area appeared [4; 5]. Meanwhile, we would like to note the following construction legislation characteristics. Its norms are not gathered on legislation branch basis, but on unique concept combination basis with important public relations general principles regulation due to the fact that construction activities in general cannot be referred to as any certain legislation branch [1; page 35]. The public relations in the construction area depend on a specific type of activities that are currently regulated by various legislation branches. It is worth mentioning that the construction legislation is a set of different types of the public relations, closely interrelated. Such relations require independent legal regulation and are considered as a complete formation. For example, civil (property), land, housing, administrative (government control), entrepreneurial (economic) and other relations. Therefore uniformity of the public relations allows to separate unique construction legislation aspects, applicable in combination at any construction relations regulation [6; 7].
Basis for the construction legislation codification is the Law of the Republic of Kazakhstan dated July 16, 2001, No. 242 «On Architectural, Urban and Construction Activities in the Republic of Kazakhstan» (hereinafter - Law). This Law governs the relations arising between state bodies, individuals and legal entities in the process of architectural, urban and construction activities, and is oriented on creation of productive environment and human vital activities, sustainable development of populated localities and inter-settlement territories.3
Moreover, the Law cannot independently determine a procedure and criteria of urban territory zoning; it is also unable to develop the specific regulations determining urban parameters and types of land of permitted use within specific territorial zone, etc. Therefore the main difference of the construction
2 The Law of the Republic of Kazakhstan dated April 6, 2016, No. 480-V «On Legal act»
3 The Law of the Republic of Kazakhstan dated July 16, 2001, No. 242 «On Architectural, Urban and Construction Activities in the Republic of Kazakhstan»
legislation from other legislation branches is a closest interrelation with regulating technical documents (hereinafter - technical documents): CS (construction standards), CS&R (construction standards and regulations), etc. Such technical documents are expressed in technical regulations and rules (requirements) developed within architectural and urban development science and practices. It is worth mentioning that these requirements are legally binding for participants of such relations and their violation can be legally prosecuted, though they are not formal regulatory legal acts.
Absence of regulatory legal act status for technical documents, that is subject to be registered in state bodies and published, raises questions on their legitimacy and legality. Considering the fact that technical documents, as well as laws and regulations, are binding for application, we find it reasonable to change approaches to them and determine them at the legislative level.
In general, a large number of bylaws and technical documentation complicate the application of construction legislation. We believe that adoption of the new codified act would solve a problem of a significant number of bylaws and technical documentation [8; 9; 10].
Our understanding is that construction legislation has to follow the principles of publicity, transparency and openness, involvement of the population to discussion of significant issues. Currently special relevance is acquired by need of public involvement to the discussion of various issues related to the development of country, region, and populated localities. In this regard, in the construction legislation, the provisions devoted to public hearings on general urban plans and settlements are required.
Thus, for example Article 28 of the Urban Development Code of the Russian Federation (hereinafter - UDC of RF) sets public hearings on general urban plans, including changes, with participation of residents of settlements, city districts, as a mandatory standard.4 Speaking about national legal system, paragraphs 2 and 3 of Article 39-9 of the Law of the Republic of Kazakhstan dated January 23, 2001, No. 148 «On Local State Administration and Self-administration in the Republic of Kazakhstan» determine a number of local issues with participation of local community.5 However, there is no discussion of general plans of the settlements in the list of the issues.
We note that the order of organizing and
holding an auction for the right to sign the agreement on the development of land for the construction of economy-class housing, the agreement on the integrated development of land for the construction of economy-class housing, as well as the requirements to the participants of the auction for the right to sign the agreement on the development of land for construction of economy-class housing, the agreement on the integrated development of land for housing construction in economy class are directly expressed in UDC of RF.6
One more important aspect to be reflected within the construction code, in our opinion, is the new mechanism of construction works tender management. Currently, construction company is selected via state procurement where the main criteria of supplier selection is the lowest price. Meanwhile low prices, offered by unscrupulous construction companies, are the main reason of low-quality construction facilities. Taking into account the importance of scrupulous general contractor selection for high-quality construction works, and also importance of selection and delivery of construction materials, it is reasonable to allocate the mechanism of construction tender management (building renovation) of facilities from public procurement general rules. Construction tender (auction) outstanding feature can be impossibility of under pricing for more than for 30% (or 20%), creation of construction companies category register depending on work experience, availability of permits and equipment, creation of unreliable construction companies register, etc.
Among international documents ratified in the Republic of Kazakhstan we would like to emphasize the Urban Charter of the Common wealth of Independent States (June 4, 1999) hat entered into force upon signature. Therefore, construction legislation of the Republic of Kazakhstan improvement is oriented on standardization and harmonization of the national legal system with regulations of the participating member states - Parties of the Commonwealth of Independent States, and on its compliance with international standards and rules in architecture, urban development and construction.
Foreign experience of construction legislation codification is also important:
- in the Russian Federation (The Urban Development Code of the Russian Federation dated December 29, 2004, No. 190-FZ governs the relations in the area of territorial development, urban zoning, land planning,
4 The Urban Development Code of the Russian Federation dated December 29th, 2004, No. 190-FZ
5 The Law of the Republic of Kazakhstan dated January 23, 2001, No. 148 «On Local State Administration and Self-administration in the Republic of Kazakhstan»
6 The Urban Development Code of the Russian Federation dated December 29th, 2004, No. 190-FZ
architecture and construction design, relations in infrastructure facilities construction, their reconstruction, building renovation, and buildings and facilities operation);
- in the Republic of Uzbekistan (The Urban Development Code of the Republic of Uzbekistan, approved by the Law of the Republic of Uzbekistan in April4, 2002, No. 353-11);
- in the Republic of Azerbaijan (The Urban Development and Construction Code of the Republic of Azerbaijan, approved by
the Law of the Republic of Azerbaijan in June 29, 2012, No. 392-IVQ, that determines legal standards, principles of urban development and construction activities, and also state, municipalities, individuals or legal entities rights and obligations in the field of urban development and construction activities);
- in the Republic of Moldova (The Urban Development Code regulates all stages of construction activities and specifies the powers of designated bodies, including state control in this sphere);
- in Germany (The Construction Code of Germany is effective since July 20, 2004, it traditionally regulates all land relations aspects).
In conclusion, we would like to emphasize that current construction legislation in the Republic of Kazakhstan does not create favorable conditions for development of construction and architectural industry. Therefore, the unified codifying statute developed on the basis of accurate and complete compliance with international standards and rules of all regulations and laws in the sphere of architecture, urban development and construction will enable to improve the construction legislation, to implement a new independent legislation branch in Kazakhstan that will have both theoretical and practical importance.
ЛИТЕРАТУРА
1. Кодификации градостроительного законодательства в Казахстане // http://www. kazportal.kz/kodifikatsii-gradostroitelnogo-zakonodatelstva-v-kazahstane/;
2. Казбаева А.Г. Теоретические аспекты кодификации градостроительного законодательства в Республике Казахстан // Науч.-прав. ж-л «Вестник Института законодательства Республики Казахстан» - 2011. - №4(24). - С. 33-36;
3. Теоретические аспекты кодификации градостроительного законодательства в Республике Казахстан // http://www.kazportal.kz/kodifikatsii-gradostroitelnogo-zakonodatelstva-v-kazahstane/;
4. Орлова С. В Казахстане появится Строительный кодекс. 8 сентября 2009г. // http:// www.zakon.kz/pravovye-novosti/146708-v-kazakhstane-pojavitsja-stroitelnyjj.html;
5. материалы BNews.kz «В Казахстане будет разработан Строительный кодекс - Мининдустрии РК» от 2 сентября 2009г. // http://bnews.kz/ru/news/ekonomi ka/606967-2009_09_02-606967;
6. Письмо Комитета по делам строительства и жилищно-коммунального хозяйства Министерства регионального развития Республики Казахстан от 6 сентября 2013 года № 21-209-712 // http://online.zakon.kz/Document/?doc_id=31441870;
7. Сагинтаев предлагает разработать единый строительный кодекс РК. 9 сентября 2013 г. // http://meta.kz/novosti/kazakhstan/817281-sagintaev-predlagaet-razrabotat-edinyy-stroitelnyy-kodeks-rk.html;
8. Законы не позволяют строить быстрее. 11 сентября 2015 г. // https://krisha.kz/content/ news/2015/zakony-ne-pozvolyayut-stroit;
9. На базе Типовых правил застройки разработают Градостроительный кодекс РК.
5 июня 2015 г. // https://www.kn.kz/news/52611/;
10. Создание Строительного кодекса РК упорядочит работу в стройотрасли - РПП Ко-станайской области. 13 июня 2014 г. // http://palata.kz/ru/press/6751-6751;
11. Кульчицкий В.В. Градостроительный кодекс применительно к проектированию строительства нефтяных и газовых скважин // http://elibrary.ru/item.asp?id=2l426081;
12. Плоом К. Новый строительный кодекс - основные изменения в строительном праве. // http://zakon24.ee/2015/04/novyj-stroitelnyj-kodeks-osnovnyje-izmenenija-v-stroitelnom-prave/;
13. Шаккума М.Л. Реформы в строительной отрасли назрели давно. // http://sroportal.ru/ publications/reformy-v-stroitelnoj-otrasli-nazreli-davno/;
14. Мурат С. Строительная отрасль ждет перемен. 03 декабря 2014 г. // http://dknews.kz/ stroitel-naya-otrasl-zhdet-peremen/;
15. О текущей ситуации и перспективах развития строительной отрасли. 05 февраля 2016 г. // http://www.svestnik.kz/aktualno/i650;
16. Вильнер М.Я. Градостроительный кодекс. Социальные последствия... // http://www.i-stroy.ru/docu/townplanning/gradostroitelnyiy_kodeks_sotsialnyie_posledstviy/3947.html;
17. Воронин И. Круглый стол: «Градостроительный кодекс: ключевые проблемы реализации» // http://www.gazeta.bn.ru/articles/2005/05/06/5456.html
REFERENCES
1. Kodifikacii gradostroitelnogo zakonodatelstva v Kazakhstane // http://www.kazportal.kz/ kodifikatsii-gradostroitelnogo-zakonodatelstva-v-kazahstane/;
2. Kazbaeva A.G. Teoreticheskie aspekti kodifikacii gradostroitelnogo zakonodatelstva v Raspublike Kazakhstan // Nauch.-prav.zh-l "Vestnik Instituta zakonodatelstva Respubliki Kazakstan" - 2011. - №4 (24). - S. 33-36; http://www.kazportal.kz/kodifikatsii-gradostroitelnogo-zakonodatelstva-v-kazahstane/;
3. Teoreticheskie aspekti kodifikacii gradostroitelnogo zakonodatelstva v Raspublike Kazakhstan // http://www.kazportal.kz/kodifikatsii-gradostroitelnogo-zakonodatelstva-v-kazahstane/;
4. Orlova S. V Kazakhstane poyavitsya Stroitelno kodeks. 8 sentyabr 2009g. // http://www. zakon.kz/pravovye-novosti/146708-v-kazakhstane-pojavitsja-stroitelnyjj.html;
5. Materiali BNews.kz "V Kazakhstane budet razrabotan Stroitelnii kadeks // http://bnews. kz/ru/news/ekonomika/606967-2009_09_02-606967;
6. Pismo Komiteta po delam stroitelstva i zhilishno-kommunalnogo hozyaistva Ministerstva regionalnogo razvitiya Respubliki Kazakhstan
ot 6 sentyabrya 2013 g. № 21-2-09-712 // http://online.zakon.kz/Document/?doc_id=31441870;
7. Sagintaev predlagaet razrabotat edinii stroitelnii kodeks RK // http://meta.kz/novosti/ kazakhstan/817281-sagintaev-predlagaet-razrabotat-edinyy-stroitelnyy-kodeks-rk.html;
8. Zakoni ne pozvolyaut stroit bistre. 11 sentyabrya 2015 g. // https://krisha.kz/content/ news/2015/zakony-ne-pozvolyayut-stroit;
9. Na baze Tipovih pravil zastroiki razrabativaut Gradostroitelnii kodeks RK. 5 iunya 2015 g. // https://www.kn.kz/news/52611/;
10. Sozdanie Srtoitelnogo kodeksa RK yporyadochit raboty v stroiotrasli - RPP Kostanaiskoi oblasti. 13 iunya 2014 g. // http://palata.kz/ru/press/6751-6751;
11. Kylchickii V.V. Gradostroitelnii kodeks primenitelno k proektipovaniu stroitelstva neftyanih i gazovih skvazhin // http://elibrary.ru/item.asp?id=21426081;
12. Ploom K. Noviy stroitelniy kodeks - osnovnie izmeneniya v stroitelnom prave // http:// zakon24.ee/2015/04/novyj-stroitelnyj-kodeks-osnovnyje-izmenenija-v-stroitelnom-prave/;
13. Shakkuma M.L. Reformi v stroitelnoi otrasli nazreli davno // http://sroportal.ru/publications/ reformy-v-stroitelnoj-otrasli-nazreli-davno/;
14. Murat S. Stroitelnaz otrasl zhdet peremen. 03 dekabrya 2014 g. // http://dknews.kz/stroitel-naya-otrasl-zhdet-peremen/;
15. O tekushei situacii i perspektivah razvitiya stroitelnoi otrasli. 05 fevralya 2016 g. // http:// www.svestnik.kz/aktualno/i650;
16. Vilner M.Ya. Gradostroitelnii kodeks. Socialnie posledstviya... // http://www.i-stroy.ru/ docu/townplanning/gradostroitelnyiy_kodeks_sotsialnyie_posledstviy/3947.html;
17. Voronin I. Kruglii stol: "Gradostroitelnii kodeks: kluchevie problem realizacii" // http:// www.gazeta.bn.ru/articles/2005/05/06/5456.html
