no. 28,29/1995
Barbara STARIČ - STRAJNAR
Nova organiziranost stanovanjskega področja z vsemi novonastalimi problemi in ukrepi
The New Organisation of the Housing Sector together with all the New Problems and Measures
Stanovaiya Stanovanjsko gospodar-stuo Pnvatizacija Slovenija
Končana privatizacija stanovwyske-gafonda v SlovenyU inia pozitivne in negativne učinke. Srečigemo se s problemi: napačne lastniške strukture, revnihlastnikov.pomankaiyem zagonskih sredstev, z lastninsko pravnimi problemi v večstaiiovanj-skih objektih, nazadovanjem v reševanju socialnih stanovanj itd. Eden od ukrepov reševanja stano-varyske gracbye Je tudi politika najemnin.
Housing Housij\g economy Privatisation Slovenia
The accon\plished privatisation oj the housing stockpresents bothposi-tive and negative ejfects. Amortg the problems which have emerged are; in\proper housi]ig tenure stnicture, "poor" owners, lack of investmeiits. legal problems related to ownership issues in multi-family housing, a reduction Ü1 socio! housing provision, etc. One of the measures that might contribute to ijicreased housing con-stniction is rent policy.
Tako kot pri vsaki tranziciji je tudi preoblikovanje družbene lastnine stanovanjskega fonda v zasebno lastnino povezano z nekaterimi težavami, ki pd so, gledano dolgoročno, manjše od prednosti, ki jih te spremembe prinašajo. Treba pa se bo navaditi, tako kot na drugih področjih, na nov sistem reševanja stanovanjskih vprašanj, prilagojen razmeram tržnega gospodarstva. Pri tem moramo Izhajati iz načela, daje skrb za rešitev stanovanjskega vprašanja predvsem skrb vsakega posameznika (enabling approach), država pa s sistemom socialnih korektivov skrbi za skupine državljanov, ki brez njene pomoči ne bi mogli rešiti svojega stanovanjskega vprašanja.
Stanovanjski zakon, sprejet konec leta 1991, je določil pravno podlago za odpravo družbene lastnine na stanovanjskem področju in začel ter končal prvo od številnih privatizacij v Sloveniji. Slovenija ima skupaj dobrih 650.000 stanovanjskih enot, od tega je dobra polovica, t.j. 355.000 stanovanj, v mestnih na-sel-jih. Pred sprejemom stanovanjskega zakona, to pomeni pred privatizacijo stanovanjskega fonda, je bilo razmerje med številom lastniK in najemnih, (družbenih) stanovanj 67 % : 33 %, po privatizaciji pa je to razmerje 88 % : 12 %, spremenilo se je torej predvsem v korist lastniških stanovanj.
Like in every transition, the trans-fonnation of the housing stock from public to private property has been accompanied by some problems which, in long-term perspective, are fewer than the advantages introduced by these changes. It will, however, be necessary to get used to Uie new system of solving housing problems which has been adapted to the circumstances of a market economy. Tlie new approach is premised on the principle that the provision of housing is primarily the responsibility of each individual (the enabling approach). The state, Uirough social corrective systems, caters only for the housing needs of Uiose population groups, who are not able to solve their housing problem williout state aid.
Tlie Housing Act passed in 1991 set the legal basis for the elimination of public property in the housing field and, tlius, stai'ted and accomplished one of a series of privatisation processes in Slovenia. Altogetlier Uiere ai-e just over 650,000 housing Lmits in Slovenia, more than half of which, i.e. 355,000 units, are in urban settlements. Before the Housing Act was adopted, that is, before privatisation of Üie housing stock, tlie ratio between owner-occupied and rented (public) housing was 67 % : 33 %. After privatisation, this ratio changed to 88 % : 12 %. in favour of owiler-occupation.
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Zakon ločuje med lastnim stanovanjem (to je stanovanje, ki ga stalno uporabljajo lastnik ali njegovi ožji družinski člani) In med štirimi kategorijami najemnih stanovanj: profitno, službeno, neprofitno in socialno stanovanje. Skrb za profitna in službena stanovanja je prepuščena posameznikom in podjetjem (delodajalcem), za gradnjo socialnih stanovanj so pristojne lokalne skupnosti (občine), neprofitne stanovanjske organizacije pa za gradnjo neprofitnih stanovanj
Problemi, ki so nastali po privatizaciji
Po privatizaciji stanovanjskega fonda S© je pokazalo, da je bila cena stanovanj prenizka, saj je bilo več kot 60 % vseh stanovanj odkupljenih v enkratnem znesku, čeprav Je zakon omogočal 10 % polog in dvajsetletno odplačilno dobo. Zaradi ugodne cene se je za odkup od-. ločil tudi tisti sloj prebivalstva, ki obveznosti v zvezi z lastništvom (vzdrževanje stanovanja, tekoče in investicijsko vzdrževanje stanovanjske hiše, davki ipd.) težko izpolnjuje. Tako se sedaj v Sloveniji srečujemo s problemom "revnih lastnikov". Rešitev tega problema vidimo v nadaljevanju procesa prestrukturiranja, v lastniških menjavah med samimi lastniki stanovanj, in sicer glede na odločitve lastnikov o: spremenjeni lokaciji stanovanja, stanovanjih z nižjimi obratovalnimi In vzdrževalnimi stroški kar zadeva opremljenost stanovanja, morebitnih preselitvah v manjše stanovanje. Vse te možnosti bi lastnikom zagotovile določena denarna sredstva, s katerimi bi se deloma rešili bremena, ki je povezano z lastnino stanovanja. Vse skupaj pa bi precej vplivalo na trg stanovanj in na normalizacijo ponudbe in povpraševanja, posredno pa tudi na znižanje cene stanovanj. Ne glede na vsa kasnejša spoznanja in razprave o ceni privatizacije, pa je dejstvo, da je stanovanjska privatizacija aktivirala znatne prihranke prebivalstva, ki so bili večinoma v tuji valuti. Važno pa je tudi dejstvo, da se je to zgodilo ravno v času monetarnega osamosvajanja države.
Hie Housing Act distinguishes between owner-occupation (housing tliat (he owner or his/her immediate family members permanently use) and four rented housing categories: priva:te rented, employer (pool), non-profit and social housing. The provision of private rented and pool housing is the responsibility of individuals and (■onipiuiies (employers), while tlie coiisü ucUon of social housing is the responsibility of local authorities (municipalities). Non-profit housing organisations are charged witli the construction of non-profit housing.
Post-Privatisation Problems
After the privatisation of the housing stock, it was discovered that house selling prices had been very low, as more than 60 % of all public housing was paid for in cash although the law allowed for a 10 % deposit and a twenty-years repayment period. Due to the favourable price, even that part of tlie population which can hardly meet the demands and obligations of ownership (maintenance, operating and rehabilitation costs, taxes, etc.) was able to purchase housing. We are thus faced with the problem of "poor owners". The solution to this problem lies in the continuation of the resti-ucturing process which will involve housing exchanges between owners. These exchanges will depend on decisions talcen with respect to: changes in housing location, house equipment which affects operation and maintenance costs and likely moves into smaller housing imits. These possibilities will provide the owners with financial resources witli which tliey coLild alleviate some tlie burdens aiising from house ownership. All Ulis will, in tiun. markedly influence the housing mai'ket and tlie nonnalisa-Uon of supply and demand, indirectly leading to a reduction in house prices.
Inespective of all later revelations and discussions regarding the cost of privati^tion, Uie fact still remains that housing privatisation activated people's substantial savings which, at tlie time wei'e de-

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Naslednji problem je povezan z last-ninskopravnimi razmerji v večsta-novanjskih hišah in z upravljanjem teh hiš v tokih okoliščinah. Skupni prostori, deli, objekti in naprave v večstanovanjskih hišah ter funkcionalno zemljišče so namreč, solastnina vseh etažnih lastnikov, pri čemer je solastniški delež vsakega etažnega lastnika sorazmeren vrednosti njegovega stanovanja glede na skupno vrednost etažne lastriine v celi hiši. Za odločitve v zvezi z odtujitvijo, spremembo namembnosti, ustanovitvijo hipoteke, stvarnih služnosti, prenovo, izboljšavami in podobno je potrebno soglasje vseh solastnikov. Glede na to, da gre pri večstanovanjskih hišgh večinoma za hiše, ki imajo deset ali več lastnikov, po tudi za hiše s sto in več lastniki, to ni enostavno. S spremembo zakona, kije že v parlamentarnem postopku, vsaj za spremembo namembnosti, prenovo in izboljšave ne bo več potrebno soglasje vseh solastnikov, marveč bo zadoščal sporazum solastnikov, ki s svojimi solastniškimi deleži sestavljajo skupaj več kot polovico vrednosti stanovanjske hiše. Predpogoj za dobro upravljanje in nemoteno obratovanje hiše pa je skrbna izbira dobrega, usposobljenega upravnika in finančna disciplina lastnikov.
Leta 1991 je začela veljati nova finančna zakonodaja, s katero so bila razveljavljena določila o stanovanjskem prispevku iz dohodka in združevanje sredstev iz čistega dohodka. V dveletnem obdobju privatizacije, ko je pritekal denar od kupnin za prodana stanovanja, odprava teh prispevkov niti ni bila tako opazna, še posebej, ker je bil na podlagi stanovanjskega zakona ustanovljen Stanovanjski sklad Republike Slo-ve-nije, kamor se je steklo in se še steka (zaradi obročnega odplačevanja kupnine) del kupnin, pridobljenih s privatizacijo bivših družbenih stanovanj. Po končani privatizaciji pa je zaradi pomanjkanja denarja stanovanjska gradnja občutno nazadovala. Stanovanjski sklad Republike Slovenije pod določenimi pogoji sicer kreditira gradnjo neprofitnih stanovanj in prvi nakuR lastnega primernega stanovanja, vendar je obenem pri socialni gradnji, ki je v izključni pristojnosti občin, vidno
posiled, mostly, in foreign currency. It is also important to recognise that Ulis happened at the time when Slovenia was establishing monetary independence.
The next problem is related to (he legal aspects of house ownership in multi-family housing and to the management of these houses under these circumstances. The common areas, parts of the building, objects and installations in multi-family houses, togelherwith the functional grounds around Uiem, are all common property of all the apartment owners. The individual share of each owner, on common property is proportional to tlie value of his housing unit in relation to Uie total value of all housing units in the multi-family house. All decisions related to alienation, change of function, estalDlishment of a mortgage, material semtude. renewal, improvements and tlie like, require tlie consent of all ownere. Consicleiing Uiat in the majority of the multi-family houses, there are ten or more owners (some houses have a him-dred or more owners), this consent is not so easy to achieve. The proposed amendment to tlie law, which is presently in pai liamentary procedure, will abolish the requirement to secure unanimous consent in case of: effecting functional changes, renewal and improvement An agreement, reached between owners whose property together constitutes more than half tlie total value of Uie mulU-family house, will be sufficient to effect tlie changes.
A precondition for the good management and smootli operation of the mulU-family house is Uie careful selection of a good, qualified manager, and the financial discipline of the ovmers.
In 1991 a new finance law came into effect which abolished the provisions on housing contiibuUons from income and the collection of funds from net income. During the two-years privatisation period, when Uiere was an inflow of house sell money, the abolition of these con-tribuUons was not felt much. This was especially so because the Housing Act also introduced Uie Housing
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največje nazadovanje. S ponovnim zagotavljanjem dodatnih proračunskih sredstev za doka pita üzacijo Stanovanjskega sklada Republike Slovenije ter z vse večjim zanimanjem za ustanavljanje neprofitnih stanovanjskih organizacij za gradnjo tiste kategorije najemnih stanovanj, ki so v Sloveniji najbolj potrebna, pa lahko pričakujemo na ponovno oživljanje stanovanjske gradnje.
Stanovanjsko gradnjo mora spodbujati tudi politika najemnin, ki so bile v preteklem obdobju daleč prenizke, da bi lahko krile dejanske stroške, ki nastanejo pri uporabi stanovanja. Posledica tega je bilo pospešeno propadanje stanovanjskega fonda, saj so bila stanovanja oziroma stanovanjske hiše neustrezno vzdrževane. Dvig kvalitete vzdrževanja stanovanjskega fonda in spodbuditev interesa za gradnjo neprofitnih in socialnih stanovanj sta bila glavna razloga, da so se neprofitne najemnine štiri leta po uveljavitvi nove stanovanjske zakonodaje dvignile na raven, ki zagotavlja kritje stroškov, ki nastajajo v zvezi z gradnjo, tekočim in investicijskim vzdrževanjem hiše, upravljanjem in amortizacijo.
Barbara Starič - Strajnar, dipl. iur., Ministrstvo za okolje in prostor - Stanovanjski sektor
FluicI of Uie Republic of Slovenia which collected, (and still collects instalment pajanents) some of tlie sell money from the privatisation of fonner public housing. Due to lack of funds after privatisation, housing consti-uction has considerably declined. Wliile the Housing Fund of Uie Republic of Slovenia, under specific conditions, offers loans for the constmction of non-profit housing, and for the first time purchase of an appropriate housing imit, llie construction of social housing, which is the exclusive responsibility of local aiithorities, has evidently declined most, nie continued provision of additional budget funds in order to increase tlie capital of the Housing Fund, togetlier with the ever increasing interest in the creation of non-profit housing organisations, for the construction of tliat category of rented housing which is on high demand in Slovenia, may indicate a revival of housing constiriction.
Rent policy niList also encourage housing construction. In the past, rents have iDeen far too low to cover the real costs which aiise from the use of housing. The result has been the rapid deterioration of the housing stock, since tlie apartments and housing blocks were inadequately maintained. A rise in tlie quality of maintaining tlie housing stock and the provision of incentives for the constjuction of non-profit and social housing were tlie main reasons why non-profit rents have, four yeai-s after Üie implementation of the new housing act, ultimately risen to the level which ensures cost recovery, in relation to constmction, operation, maintenance, management and rehabilitation costs.
Barbara Starič - Strajnar, B. L., Ministry of the Environment- Housing Department.