28 октября 2014 года в Москве в актовом зале Росреестра состоялось значимое событие в жизни профессионального сообщества – проведено рабочее совещание по теме «Совершенствование саморегулирования в сфере кадастровой деятельности в России». Инициаторами и организаторами его проведения были саморегулируемая организация некоммерческое партнерство «Кадастровые инженеры» и некоммерческое партнерство «Национальная палата кадастровых инженеров».
Важность этого мероприятия, на наш взгляд, заключается в том, что оно было проведено крайне своевременно, в условиях начала практической реализации значительной части мер, в рамках Плана мероприятий «дорожной карты», направленных на совершенствование кадастровой деятельности. При этом, организаторам мероприятия удалось при рассмотрении таких важных для профессионального сообщества вопросов привлечь к их обсуждению столь представительную аудиторию в лице представителей Минэкономразвития России, Росреестра, ФГБУ «ФКП Росреестра», АНО «Агентство стратегических инициатив по продвижению новых проектов», Совета по саморегулированию предпринимательской и профессиональной деятельности Торгово-промышленной палаты Российской Федерации, Совета Российского Союза промышленников и предпринимателей по развитию саморегулирования и др.
Вместе с тем, мы сожалеем, что в обсуждении стратегических вопросов саморегулирования в кадастровой сфере со стороны профессионального сообщество приняли участие в основном представители СРО НП «Кадастровые инженеры» и НП «Национальная палата кадастровых инженеров». Представители же других СРО выступили лишь по второстепенным вопросам или же на данном совещании вообще не присутствовали. Так, например, не было приглашено на данное мероприятие руководство некоммерческого партнерства «Национальный совет по кадастровой деятельности». Не было официального приглашения и представителям СРО НП «ОПКД».
В связи с этим, СРО НП «ОПКД» хотела бы высказать свою позицию по основным вопросам повестки дня данного совещания.
В целом, мы поддерживаем законодательную инициативу Правительства РФ, направленную на оптимизацию процедур государственного кадастрового учета недвижимого имущества и государственной регистрации прав на недвижимое имущество, а также на повышение качества оказания государственных и негосударственных услуг в этой сфере. При этом, мы отмечаем, что стратегия совершенствования кадастровой деятельности и ее саморегулирования выработана и детально отражена в Плане мероприятий («дорожной карте») «Повышение качества государственных услуг в сфере государственного кадастрового учета недвижимого имущества и государственной регистрации прав на недвижимое имущество и сделок с ним», утвержденной распоряжением Правительства Российской Федерации от 01.12.2012 №2236-р (в ред. от 04.09.2014) (далее – «дорожная карта»). На наш взгляд, ее безусловное выполнение и станет залогом практической реализации выработанной стратегии.
Разработанный комплекс законопроектов и, в первую очередь, Законопроекты №543929-6 «О внесении изменений в отдельные законодательные акты Российской Федерации в части государственного кадастрового учета и государственной регистрации прав на недвижимое имущество» («о точных границах») и №597863-6 «О государственной регистрации недвижимости» («единый закон»), принятые Государственной Думой в первом чтении, а также Законопроект «О внесении изменений в Федеральный закон от 24 июля 2007г. №221-ФЗ «О государственном кадастре недвижимости» в части совершенствования кадастровой деятельности», дает основания полагать, что выполнение мероприятий «дорожной карты», наконец-то взяты Правительством РФ на жесткий контроль и будут своевременно выполнены.
Мы особенно поддерживаем появление Распоряжения Правительства РФ от 4 сентября 2014 года №1723-р, которым внесены кардинальные «значимые» изменения в содержание и сроки выполнения пункта 30.4 «дорожной карты», касающиеся обязательности членства кадастровых инженеров в саморегулируемых организациях в сфере кадастровой деятельности. На наш взгляд, значимость данных изменений заключается не только в сокращении сроков и даже не в самом введении обязательности членства кадастровых инженеров в СРО, а в том, что наконец-то решено ввести возможность досудебного обжалования решений о приостановлении осуществления государственного кадастрового учёта с участием саморегулируемых организаций в сфере кадастровой деятельности. Мы считаем, что такое досудебное обжалование решений органов кадастрового учета невозможно вне рамок СРО. Мы полностью согласны и с тем, что для оперативного решения этих двух важнейших задач их реализация запланирована через Законопроект «О внесении изменений в Федеральный закон от 24 июля 2007г. №221-ФЗ «О государственном кадастре недвижимости» в части совершенствования кадастровой деятельности», который на сегодняшний день прошел этап публичного обсуждения, рассмотрен на заседании экспертного совета при открытом Правительстве РФ и, в целом, готов к внесению в Правительство РФ и Государственную Думу РФ.
Все перечисленные выше законопроекты запланированы в рамках реализации «дорожной карты» и, по нашему мнению, именно на их принятии, введении в действие и безусловном выполнении необходимо сосредоточить основные усилия государственных структур и профессионального сообщества.
Однако, изучив материалы проведенного совещания (с информацией о совещании можно ознакомиться на сайте СРО НП «Кадастровые инженеры» http://www.roscadastre.ru/news/3984836/) мы пришли к выводу, что ряд предлагаемых организаторами совещания мер могут привести к существенному торможению набранных темпов реализации «дорожной карты». Более того, отдельные из них явно направлены на лоббирование интересов определенного круга лиц и организаций. При этом, как правило, они преподносятся как мнение всего профессионального сообщества, поддержанного государственными структурами.
Прежде всего, хотим обратить внимание на предлагаемый Законопроект «О кадастровой деятельности». На сегодняшний день, на наш взгляд, он находится в крайне «сыром», если не сказать «зачаточном» состоянии. Изучив представленную на совещании презентацию разработчиков данного законопроекта — генерального директора Центра развития континентального права Л.В.Усович становится совершенно очевидно, что даже у них на сегодня слишком много вопросов, и нет ответов, как разрешить то или иное положение законопроекта. У государственных же структур, которым придется принимать соответствующие решения, таких вопросов будет еще больше, как, впрочем, и у значительной части профессионального сообщества. В результате это может привести к длительным согласованиям, обоснованиям и правовым экспертизам данного законопроекта, что не позволит в установленные сроки выполнить мероприятия «дорожной карты». Мы считаем совершенно необоснованным и даже вредным стремление отдельных организаций как можно быстрее продвинуть данный законопроект, разработка которого даже не запланирована в рамках «дорожной карты». На наш взгляд совершенствование кадастровой деятельности сейчас необходимо осуществлять путем оперативного принятия поправок в Федеральный закон от 24 июля 2007 года N 221-ФЗ «О государственном кадастре недвижимости», а в дальнейшем положения данного закона, касающиеся кадастровой деятельности, могут стать основой будущего Закона «О кадастровой деятельности» (если он будет нужен).
Теперь о Резолюции проведенного совещания «О совершенствовании саморегулирования в сфере кадастровой деятельности в России» (с текстом Резолюции можно ознакомиться на сайте СРО НП «Кадастровые инженеры» http://www.roscadastre.ru/html/docs/Rezolution281014.pdf). Мы знаем, что данная Резолюция была принята 29 октября 2014 года на очередном общем собрании саморегулируемой организации НП «Кадастровые инженеры» ее членами, а вот то, что она была принята участниками совещания в том виде, в котором ее выложили организаторы совещания на своем сайте, нам верится с трудом. Прежде всего потому, что в выступлениях (презентациях) целого ряда должностных лиц, таких как сопредседателя Совета ТПП РФ по саморегулированию предпринимательской и профессиональной деятельности К.Н.Апрелева «О национальных объединениях саморегулируемых организаций», заместителя директора Департамента недвижимости Минэкономразвития России В.А.Спиренкова «Стратегия развития саморегулирования в сфере кадастровой деятельности в России», начальника Управления Росреестра по контролю и надзору в сфере саморегулируемых организаций Т.Б.Киселевой «Совершенствование кадастровой деятельности путем наделения полномочиями СРО кадастровых инженеров», вице-президента РСПП, Председателя Комитета РСПП по развитию саморегулирования В.С.Плескачевского «Корпоративные отношения в саморегулируемой организации» мы не увидели не только поддержки отдельных пунктов Резолюции, но и отметили совершенно иную позицию по ряду обсуждаемых вопросов. Это, в первую очередь, касается 1 и 3 пунктов Резолюции, а также частично пунктов 5 и 6.
Особую озабоченность вызывает настойчивое желание организаторов этого мероприятия в лице руководства СРО НП «Кадастровые инженеры» и НП «Национальная палата кадастровых инженеров» при поддержке Центра континентального права любыми способами реализовать пункт 3 Резолюции:
«Поддержать развитие и наделение полномочиями Национального объединения саморегулируемых организаций в сфере кадастровой деятельности как единого органа, объединяющего все ранее созданные и вновь внесенные в государственный реестр саморегулируемые организации в сфере кадастровой деятельности».
Складывается впечатление, что и вся эта «возня» вокруг «недоработанного» Законопроекта «О кадастровой деятельности» ведется в интересах лишь одной организации, для наделения исключительными полномочиями некой «Национальной палаты». Обратите внимание – не «Национального объединения саморегулируемых организаций в сфере кадастровой деятельности», а конкретно «Национальной палаты кадастровых инженеров». В презентации выступления генерального директора СРО НП «Кадастровые инженеры» М.И.Петрушиной определено и скромное место «Национальной палаты» в системе земельно-имущественных отношений России, которое можно расценивать как федеральное министерство второго уровня. При этом, на сегодняшний день ни один из отраслевых законов, даже в тех отраслях экономики, где членство в СРО давно является обязательным, не давал подобных полномочий своим национальным объединениям.
Мы считаем, что прежде чем создавать еще одного «бюрократического монстра» с реальным риском возврата к государственно-административному регулированию кадастровой деятельности и возложить бремя его содержания на рядового кадастрового инженера, необходимо дать возможность саморегулируемым организациям практически реализовать стоящие перед ними задачи по защите прав и законных интересов своих членов, а также эффективному контролю за их профессиональной деятельностью в условиях обязательного членства кадастровых инженеров в СРО. В дальнейшем мы понимаем и необходимость создания Национального объединения саморегулируемых организаций, но делать это надо не по заказу одной определенной организации, а на принципах добровольности и демократичности. Такие принципы, а также цели и задачи Национальных объединений, на наш взгляд, заложены во внесенном в Государственную Думу Законопроекте № 546788-6 «О национальных объединениях саморегулируемых организаций». Очевидно, что сначала целесообразно дождаться принятия этого или же другого Федерального закона, например вносящего изменения в виде отдельной главы в действующий Федеральный закон от 1 декабря 2007 г. №315-ФЗ «О саморегулируемых организациях», а уже потом принимать решение нужна ли вообще детализация и расширение полномочий Национального объединения в отраслевом Федеральном законе. И уж, тем более считаем недопустимым ограничивать полномочия саморегулируемых организаций и практически полностью подчинить их деятельность какому бы то не было Национальному объединению.
И последнее. Мы удовлетворены тем, что Минэкономразвития РФ, прислушалось к мнению НП «Национальный Совет по кадастровой деятельности» и СРО НП «ОПКД» по вопросу установления уголовной ответственности за умышленное внесение кадастровым инженером заведомо ложных сведений в межевой план, акт согласования местоположения границ земельных участков, технический план или акт обследования и, в результате, в Государственную Думу РФ внесен законопроект, который не предусматривает наказание кадастровому инженеру в виде реального лишения свободы. Законопроектпредусматривает наказание кадастровому инженеру соответствующее наказанию, предусмотренному статьёй 170 Уголовного кодекса и применяемому к должностным лицам, использующим своё служебное положение при регистрации заведомо незаконных сделок с землёй, искажении сведений государственного кадастра недвижимости и умышленного занижения размеров платежей за землю.
В тоже время мы не можем поддержать предложения Минэкономразвития России о продлении срока до 1 января 2017 года, в течение которого субъекты Российской Федерации могут устанавливать предельные максимальные цены на кадастровые работы. Во многих Европейских странах ограничивают, наоборот, предельно минимальные цены на проведение кадастровых работ. По нашему мнению такой подход правильный, так как это, прежде всего, не допустит снижения качества выполнения кадастровых работ, исключит попытки кадастровых инженеров находить другие способы оплаты и не будет подталкивать наиболее квалифицированных кадастровых инженеров к уходу из профессии. Предельно же максимальные цены, и без государственного регулирования, будет ограничивать рынок, с учетом того, что в кадастровой деятельности спрос всегда превышает предложение.
Совет СРО НП «ОПКД»
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