Forest Possession in Protected-Wilderness Areas and Its TitlingPosesión forestal en áreas silvestres protegidas y su titulación

"IV.- This Tribunal has repeatedly held that "... A Possessory Information (Información Posesoria) is a non-contentious judicial proceeding for the formalization of a registrable title to a property right that has been acquired through usucapion (usucapión), having fulfilled the corresponding legal requirements. It requires demonstrating possession as owner, in a quiet, public, peaceful, and uninterrupted manner (articles 1 of the Ley de Informaciones Posesorias and 856 of the Civil Code). The applicant (titulante), apart from lacking a title registered or registrable in the Public Registry, must expressly state that the property has not been previously registered in the Public Registry. For reasons of public interest, and to avoid a double registry inscription over the same property, or to protect third parties with better rights than the applicant, the Law requires notification to certain subjects. It also established an opposition procedure within the Possessory Information, in the event that any interested party feels harmed by the titling (article 8). The Ley de Informaciones Posesorias orders the Judge to consider as parties, and therefore to personally notify from the beginning of the proceedings, the adjoining landowners (colindantes), because the titling could encompass part of the lands belonging to them... it is ordered to notify co-owners or joint owners (condueños or condóminos). Likewise, to protect the interests of the State, it is ordered to consider the Procuraduría General de la República and the Instituto de Desarrollo Agrario as parties, to safeguard property subject to public domain, and state Agrarian Property (article 5). Finally, the Law mandates summoning all interested parties, through the publication of an Edict in the Boletín Judicial, who may have a legitimate interest in the proceeding. (See numeral 5 of the Ley de Informaciones Posesorias).- The Ley de Informaciones Posesorias, in its article 7, as well as the Forest Laws (Leyes Forestales), have sought to protect forest resources from human action, subjecting them to various forms of forest management. Although the titling of such areas has been permitted, which once declared as conservation areas become part of the State Forest Heritage (Patrimonio Forestal del Estado), compliance with other more qualified requirements is demanded. This leads us directly to the concept of ecological possession (posesión ecológica), and to the criterion of the ecological function of forest property. In repeated rulings, both from the First Chamber of Cassation (Sala Primera de Casación) and from this Superior Agrarian Tribunal (Tribunal Superior Agrario), the principles that should govern to resolve this type of agro-environmental situations have been established. Our country has been a pioneer in the construction of the institutes of agrarian possession (posesión agraria) and ecological possession. The case law itself has recognized and developed these institutes, as well as the life cycle of agrarian possession and, recently, of ecological possession (within the broader criterion of the ecological function of forest property). The case law itself has sought to distinguish entrepreneurial property and possession, where an activity directed at forest cultivation is exercised, from that where an extractive activity or a merely conservative one is simply carried out. In these latter cases, one would be in the presence of a forest property or possession (without enterprise). It is precisely in these cases that the Ley Forestal establishes an entire legal regime for the protection of forest resources, sometimes subjecting the owner obligatorily to the forest regime and in other cases voluntarily. In this way, in forest possession (posesión forestal) the de facto power is exercised over a property of forest vocation or mostly intended to protect forest resources, without a view to its exploitation, or dedicating it to the simple extraction of timber species, through management plans to achieve the natural regeneration of the forest. In both cases there would be no development of a plant or animal biological cycle, nor would any risk be assumed by man. That is why the law does not protect, but rather represses, possession through which the forest resources of protected areas are destroyed. It also denies the possibility of acquiring possessory rights over lands of the national reserves when a harmful action has been exercised against forest resources. Today, part of the agrarian doctrine affirms the existence of a Forest Law (Derecho forestal), with the particularities of an organic and complete system, where the institutes of forest property and possession occupy an important place. In Costa Rica, forest property, and also forest possession as a real right derived therefrom, or conceived independently, began to take shape from the Código Fiscal of 1885, which establishes an entire chapter regarding forests whose regulations tend towards their conservation. Subsequently, the Ley de Terrenos Baldíos No. 13 of January 6, 1939, incorporates said principles. Then the Ley de Tierras y Colonización in its article 7 expands the national reserves for the protection of such resources.-

VII.The special legislation regarding the protection of forest property and possession has three stages in our country. The first stage of forest property is framed by Law No. 4465 of November 35, 1969 (sic). The second opens through better-conceived regulations through Law No. 7032 of April 7, 1986, which was later declared unconstitutional. The final one operates with the enactment of the Ley Forestal No. 7174 of June 28, 1990, recently amended by Law No. 7575 of February 13, 1996 (published in supplement 21 of La Gaceta No. 72 of Tuesday, April 16, 1996).

These contain various forest property regimes and limit the use and exploitation of resources by private individuals. It is not possible to acquire title over lands with forest cover (cobertura boscosa) without demonstrating that the forest resource has been protected. Its constitutional basis is found in the second paragraph of Article 45 of the Constitution. Through limitations of social interest, the institution of forest property and possession is protected. This is not the same as civil or agrarian property; it is a property for conservation, and therefore the possessory acts carried out on it must have that purpose.-**VIII.** Forest possession has had its legal regime in the aforementioned Forest Laws. It falls upon a specific good: lands covered by forests or of forest aptitude (terrenos de aptitud forestal). The owner or possessor of such goods has the obligation to conserve forest resources and may only exploit them economically under the restrictions or limitations imposed by law. For the legal resolution of conflicts arising from the exercise of forest possession, that special legal regime and the principles of Forest Law must be applied. The Forest Law establishes as an essential function and priority of the State to ensure the protection, conservation, exploitation, industrialization, administration, and promotion of the country's forest resources (recursos forestales), in accordance with the principle of rational use of renewable natural resources (Article 1). All lands of forest aptitude (terrenos de aptitud forestal) and forests (los bosques) of the country, whether state-owned or reduced to private domain, are subject to the purposes of the law. The forest regime (régimen forestal) is the set of provisions, among others of a legal, economic, and technical nature, established by law, its regulation, and other norms, that regulate the conservation, renewal, exploitation, and development of the country's forests and lands of forest aptitude (bosques y terrenos de aptitud forestal). Therefore, to acquire forest property by usucapion (usucapión), the exercise of forest possession is required. Article 7 of the Law on Possessory Informations (Ley de Informaciones posesorias), amended by the Forest Law, stated, before its reform: "Article 7.- When the property referred to in the information is within an area declared a national park, biological reserve (reserva biológico), forest reserve (reserva forestal), or protective zone (zona protectora), **the applicant must demonstrate having exercised decennial possession for at least ten years prior to the effective date of the respective law or decree by which the corresponding wilderness area was created.** Properties that are outside such areas and that **have forests (tengan bosques)**, may only be titled if the applicant demonstrates having possessed them for ten years or more and **having protected said natural resource**, on the understanding that the property must be duly demarcated with fences or firebreaks." In other words, the de facto power in forest possession falls upon the natural resource "forests" or "lands of forest aptitude," and the possessory acts must be directed towards their protection and conservation. Only if that is demonstrated may lands be acquired or registered in favor of such possessors. Otherwise, they would form part of the natural heritage of the state (Article 13 of the new Forest Law), with the character of unseizable and inalienable, and their possession shall not generate any right in favor of private individuals (Article 14 of the new Forest Law).- **IX.** The Agrarian Tribunal (Tribunal Agrario) had interpreted Article 7 of the Law on Possessory Informations (Ley de Informaciones Posesorias), before being amended by the new Forest Law, as requiring personal possession, exercised for ten years prior to the creation of the forest reserve or protected area (See in this regard Voto No. 169 of 9:40 a.m. on March 22, 1991, and Voto No. 251 of 2:00 p.m. on April 17, 1991)...". However, that interpretation of Article 7 of the Forest Law was challenged as "unconstitutional" by the applicant herein, and the Constitutional Chamber (Sala Constitucional), in Voto No. 4587-97 (published in Boletín Judicial No. 188 dated October 1, 1997) declared, in pertinent part, the following: "The action is partially with merit and, consequently, the interpretation of Article 7 of the Law on Possessory Informations No. 139 of July 14, 1941, the text of which corresponds to the amendment produced by Forest Law No. 7174 of June 28, 1990, is unconstitutional, according to which, in order to title lands within national parks, biological reserves, forest reserves, or protective zones, personal possession is required for ten years prior to the effective date of the law or decree creating the protected wilderness area, and which does not favor, in these cases, possession transmitted by previous possessors. This judgment is declaratory and its effects retroactive, without prejudice to rights acquired in good faith...". In such a way that current possessors may take advantage of transmitted possession... **X.** Forest Law No. 7575 also maintained the restrictions in the Law on Possessory Informations for the titling of lands within protected areas. In this regard, the current provision states: "Article 7.- When the property referred to in the information is within a protected wilderness area, whatever its management category, **the applicant must demonstrate being the holder of legal rights over decennial possession, exercised at least ten years prior to the effective date of the law or decree by which that wilderness area was created.**"(The bold text is ours). That is, the legislator's intention is that these areas have been kept protected, conserved throughout this entire time, even before the creation of the Reserves and protected areas...". (Resolution of 2:50 p.m. on February 20, 1998, corresponding to Voto No. 113)." They contain various forest property regimes and limit the use and exploitation of resources by private individuals. It is not possible to acquire ownership over lands with forest cover (cobertura boscosa) if it is not demonstrated that the forest resource has been protected. Its constitutional basis is found in the second paragraph of Article 45 of the Constitution. Through limitations of social interest, the institution of forest property and possession is protected. This is not the same as civil or agrarian property; it is a property for conservation, and therefore the possessory acts carried out on it must have that purpose.— **VIII.** Forest possession has had its legal regime in the aforementioned Forest Laws. It falls upon a specific good: lands covered by forests or of forest aptitude (terrenos de aptitud forestal). The owner or possessor of such goods has the obligation to conserve forest resources and may not exploit them economically except under the restrictions or limitations imposed by law. For the legal resolution of conflicts arising from the exercise of forest possession, that special legal regime and the principles of Forest Law must be applied. The Forest Law establishes as an essential function and priority of the State to ensure the protection, conservation, exploitation, industrialization, administration, and promotion of the country's **forest resources**, in accordance with the principle of rational use of renewable natural resources (Article 1). All **lands of forest aptitude** and **forests** in the country, whether state-owned or reduced to private domain, are subject to the purposes of the law. The **forest regime** is the set of provisions, among others, of a legal, economic, and technical nature, established by the law, its regulations, and other norms, that regulate the conservation, renewal, exploitation, and development of the country's **forests and lands of forest aptitude**. Therefore, to acquire forest property by usucapion, the exercise of forest possession is required. Article 7 of the Ley de Informaciones Posesorias, amended by the Forest Law, stated, before its amendment: "Article 7.- When the property to which the information refers is included within an area declared a national park, biological reserve, forest reserve, or protective zone, **the title applicant must demonstrate having exercised decennial possession for at least ten years prior to the effective date of the respective law or decree that created the corresponding wilderness area.** Properties that are outside of these areas and that **have forests** may only be titled if the petitioner demonstrates having possessed them for ten years or more and **having protected said natural resource**, on the understanding that the property must be duly demarcated with fences or lanes." In other words, the de facto power in forest possession falls upon the natural resource "forests" or "lands of forest aptitude," and the possessory acts must be aimed at their protection and conservation. Only if that is demonstrated could lands be acquired or registered in favor of those possessors. Otherwise, they would become part of the natural patrimony of the State (Article 13 of the new Forest Law), with an unattachable and inalienable nature, and their possession shall not create any right in favor of private individuals (Article 14 of the new Forest Law).— **IX.** The Agrarian Tribunal had interpreted Article 7 of the Ley de Informaciones Posesorias, before being amended by the new Forest Law, as requiring personal possession, exercised ten years prior to the creation of the forest reserve or protected area (See in this regard Votos No. 169 of 9:40 a.m. on March 22, 1991 and No. 251 of 2:00 p.m. on April 17, 1991)...". However, that interpretation of Article 7 of the Forest Law was challenged as "unconstitutional" by the title applicant herein, and the Constitutional Chamber, in Voto No. 4587-97 (published in Boletín Judicial No. 188 dated October 1, 1997) declared, in relevant part, the following: "The action is partially granted and, consequently, it is unconstitutional to interpret Article 7 of the Ley de Informaciones Posesorias No. 139 of July 14, 1941, whose text corresponds to the amendment produced by Ley Forestal No. 7174 of June 28, 1990, in such a way that to title lands included in national parks, biological reserves, forest reserves, or protective zones, personal possession ten years prior to the effective date of the law or decree creating the protected wilderness area is required, and that posession transmitted by previous possessors is not favored in these cases. This ruling is declaratory and has retroactive effects, without prejudice to good-faith acquired rights...". Such that current possessors may benefit from transmitted possession... **X.** Ley Forestal No. 7575 also maintained the restrictions in the Ley de Informaciones Posesorias for being able to title lands included in protected areas. In this regard, the current provision states: "Article 7.- When the property to which the information refers is included within a protected wilderness area, whatever its management category, **the title applicant must demonstrate being the holder of legal rights over decennial possession, exercised at least ten years prior to the effective date of the law or decree that created that wilderness area.**" (Emphasis added). That is, the legislator's intent is that these areas have been maintained protected, conserved throughout all this time, even before the creation of the Reserves and protected areas...". (Resolution of 2:50 p.m. on February 20, 1998, corresponding to Voto No. 113)."

"IV.- Este Tribunal de forma reiterada ha considerado que "... La Información Posesoria es un trámite de actividad judicial no contenciosa para la formalización de un título registrable sobre un derecho de propiedad que se ha llegado a adquirir por la usucapión, cumpliendo para ello con los requisitos legales correspondientes. Se exige demostrar la posesión a título de dueño, en forma quieta, pública, pacífica e ininterrumpida (artículos 1 Ley de Informaciones Posesorias y 856 del Código Civil). El titulante, aparte de carecer de título inscrito o inscribible en el Registro Público, debe manifestar expresamente que la finca no ha sido inscrita en el Registro Público anteriormente. Por razones de interés público, y para evitar una doble inscripción registral sobre un mismo bien, o bien, para tutelar a terceros de mejor derecho que el titulante, la Ley exige notificar a ciertos sujetos. También estableció un trámite de oposición dentro de la Información Posesoria, en caso de que alguno de los interesados se sienta perjudicado por la titulación (artículo 8). La Ley de Informaciones Posesorias ordena al Juez tener como partes y por tanto notificarles personalmente desde el inicio de las diligencias, a los colindantes, ello por cuanto la titulación podría abarcar parte de las tierras que les pertenecen... se ordena notificar a los condueños o condóminos. Igualmente, en resguardo de los intereses del Estado, se ordena tener como parte a la Procuraduría General de la República y al Instituto de Desarrollo Agrario, para el resguardo de la propiedad sujeta al dominio público, y de la Propiedad Agraria estatal (artículo 5). Finalmente, la Ley manda a citar a todos los interesados, mediante la publicación de un Edicto en el Boletín Judicial, que puedan tener un interés legítimo en el proceso.(Ver numeral 5 de la Ley de Informaciones Posesorias).- La Ley de Informaciones Posesorias, en su artículo 7, así como las Leyes Forestales han procurado proteger los recursos forestales de la acción humana, sometiéndolos a diversas formas de manejo forestal. Aunque se ha permitido la titulación de dichas áreas, que ya declaradas como áreas de conservación pasan a formar parte del Patrimonio Forestal del Estado, se exige el cumplimiento de otros requisitos más calificados. Eso nos conduce, directamente al concepto de posesión ecológica, y al criterio de la función ecológica de la propiedad forestal. En reiteradas sentencias, tanto de la Sala Primera de Casación, como del mismo Tribunal Superior Agrario, se han establecido los principios que deben regir para resolver éste tipo de situaciones agro-ambientales. Nuestro país ha sido pionero en la construcción de los institutos de la posesión agraria y la posesión ecológica. La misma jurisprudencia ha reconocido y desarrollado estos institutos, así como el ciclo de vida de la posesión agraria y, recientemente de la posesión ecológica (dentro del más amplio criterio de la función ecológica de la propiedad forestal). La misma Jurisprudencia ha querido distinguir la propiedad y posesión empresarial donde se ejercita una actividad dirigida al cultivo del bosque, de aquella donde simplemente se realiza una actividad extractiva o bien, meramente conservativa. En estos últimos casos se estaría en presencia de una propiedad o posesión forestal (sin empresa). Precisamente es en estos casos donde la Ley Forestal viene a establecer todo un régimen jurídico para la protección de los recursos forestales, sometiendo algunas veces al propietario en forma obligatoria al régimen forestal y en otros casos en forma voluntaria. De esa forma, en la posesión forestal el poder de hecho se ejerce sobre un bien de vocación forestal o en su mayor parte destinado a proteger los recursos forestales, sin miras a su explotación o bien, dedicándolo a la simple extracción de especies maderables, a través de planes de manejo para lograr la regeneración natural del bosque. En no y otro caso no existiría el desarrollo de un ciclo biológico vegetal o animal, ni asumiría el hombre ningún riesgo. Es por eso que la ley no tutela, al contrario reprime, la posesión a través de la cual se destruyan los recursos forestales de áreas protegidas. Además niega la posibilidad de adquirir derechos de posesión sobre tierras de las reservas nacionales cuando se ha ejercido una acción dañina en contra de los recursos forestales. Hoy, parte de la doctrina agrarista afirma la existencia de un Derecho forestal, con particularidades de sistema orgánico y completo, donde ocupan un lugar importante los institutos de la propiedad y posesión forestal. En Costa Rica la propiedad forestal, y también la posesión forestal como derecho real derivado de aquella, o bien concebido en forma independiente, se comienza a perfilar desde el Código Fiscal de 1885, que establece todo un capítulo en cuanto a bosques cuyas regulaciones tienden a su conservación. Posteriormente la Ley de Terrenos Baldíos No. 13 del 6 de enero de 1939 incorpora dichos principios. Luego la Ley de Tierras y Colonización en su artículo 7 amplía las reservas nacionales para la protección de tales recursos.-VII. La legislación especial en cuanto a la tutela de la propiedad y posesión forestales tiene tres etapas en nuestro país. La primera etapa de la propiedad forestal se enmarca con la Ley No. 4465 del 35 de noviembre de 1969 (sic). La segunda se abre a través de una normativa mejor concebida a través de la Ley No. 7032 del 7 de abril de 1986, la cual fue posteriormente declarada inconstitucional. La última opera con la promulgación de la Ley Forestal No. 7174 del 28 de junio de 1990, reformada recientemente, por Ley No. 7575 del 13 de febrero de 1996 (publicada en el alcance 21 de La Gaceta No. 72 del martes 16 de abril de 1996). En ellas, se contienen diversos regímenes de propiedad forestal, y limita el uso y aprovechamiento de los recursos por los particulares. No es posible adquirir la titularidad sobre terrenos con cobertura boscosa si no se demuestra haber protegido el recurso forestal. Su fundamento constitucional se encuentra en el párrafo segundo del artículo 45 de la Constitución. A través de limitaciones de interés social se protege el instituto de la propiedad y la posesión forestal. Esta no es igual a la civil, ni a la agraria, se trata de una propiedad para conservar, y por tanto los actos posesorios que en ella se realicen deben tener esa finalidad.- VIII. La posesión forestal ha tenido su régimen jurídico en las Leyes Forestales mencionadas. Recae sobre un bien específico: los terrenos cubiertos de bosques o de aptitud forestal. El propietario o poseedor de tales bienes tiene la obligación de conservar los recursos forestales y no los puede aprovechar económicamente sino bajo las restricciones o limitaciones impuestas por la ley. Para la solución jurídica de conflictos que nazcan del ejercicio de la posesión forestal, se debe aplicar ese régimen jurídico especial y los principios del Derecho forestal. La Ley Forestal establece como función esencial y prioridad del Estado, velar por la protección, la conservación, el aprovechamiento, la industrialización, la administración y el fomento de los recursos forestales del país, de acuerdo con el principio de uso racional de los recursos naturales renovables.(Artículo 1). Todos los terrenos de aptitud forestal y los bosques del país, ya sea estatales o que estén reducidos a dominio particular, quedan sometidos a los fines de la ley. El régimen forestal es el conjunto de disposiciones, entre otras, de carácter jurídico, económico y técnico, establecidas por la ley, su reglamento y demás normas, que regulen la conservación, la renovación, el aprovechamiento y el desarrollo de los bosques y terrenos de aptitud forestal del país. Por ello, para adquirir la propiedad forestal por usucapión, se requiere el ejercicio de la posesión forestal. El artículo 7 de la Ley de Informaciones posesorias, reformado por la Ley Forestal, establecía, antes de su reforma: "Artículo 7.- Cuando el inmueble a que se refiere la información esté comprendido dentro de una zona declarada parque nacional, reserva biológico, reserva forestal o zona protectora, el titulante tendrá que demostrar haber ejercido la posesión decenal con por lo menos diez años de antelación a la fecha de vigencia de la respectiva ley o decreto en que se creó la respectiva área silvestre. Las fincas que estén fuera de esas áreas y que tengan bosques, solo podrán ser tituladas si el promovente demuestra haberlas poseído por diez años o más y haber protegido dicho recurso natural, en el entendido de que el inmueble tendrá que estar debidamente deslindado con cercas o carriles." En otros términos, el poder de hecho en la posesión forestal recae sobre el recurso natural "bosques" o "terrenos de aptitud forestal", y los actos posesorios deben ir encaminados a su protección y conservación. Sólo si se demuestra eso podría adquirirse o inscribirse terrenos a favor de dichos poseedores. De lo contrario, quedarían formando parte del patrimonio natural del estado (artículo 13 de la nueva Ley Forestal), con carácter inembargable e inalienable, y su posesión no causará ningún derecho a favor de los particulares (artículo 14 de la nueva Ley Forestal).- IX. El Tribunal Agrario, había interpretado el artículo 7 de la Ley de Informaciones Posesorias, antes de ser reformado por la nueva Ley Forestal, en el sentido de exigir una posesión personal, ejercida con diez años de antelación a la creación de la reserva forestal o área protegida (Véase en tal sentido los Votos No. 169 de las 9 horas 40 minutos del 22 de marzo de 1991 y No. 251 de las 14 horas del 17 de abril de 1991)...". Sin embargo, esa interpretación del artículo 7 de la Ley Forestal, fue cuestionada de "inconstitucional", por la aquí titulante, y la Sala Constitucional, en Voto No. 4587-97 (publicado en el Boletín Judicial No. 188 de fecha 1 de octubre de 1997) declaró, en lo que interesa, lo siguiente: "Se declara parcialmente con lugar la acción y, en consecuencia, que es inconstitucional la interpretación del artículo 7 de la Ley de informaciones Posesorias No. 139 del 14 de julio de 1941, cuyo texto corresponde a la reforma producida por la Ley Forestal No. 7174 del 28 de junio de 1990, de acuerdo con la cual para titular terrenos comprendidos en parques nacionales, reservas biológicas, reservas forestales o zonas protectoras, se requiere posesión personal con diez años de antelación a la fecha de vigencia de la ley o decreto que crea el área silvestre protegida, y que no favorece en estos casos la posesión transmitida por anteriores poseedores. Esta sentencia es declarativa y sus efectos retroactivos, sin perjuicio de derechos adquiridos de buena fe...". De manera tal que los poseedores actuales pueden aprovechar la posesión trasmitida...X. La Ley Forestal No. 7575, también mantuvo las restricciones en la Ley de Informaciones Posesorias, para poder titular terrenos comprendidos en áreas protegidas. Al respecto dispone el actual numeral: "Artículo 7.-Cuando el inmueble al que se refiera la información esté comprendido dentro de un área silvestre protegida, cualquiera que sea su categoría de manejo, el titulante deberá demostrar ser titular de los derechos legales sobre la posesión decenal, ejercida por lo menos con diez años de antelación a la fecha de vigencia de la ley o decreto en que se creó esa área silvestre."(La negrita es nuestra). Es decir, la intención del legislador es que esas áreas se hayan mantenido protegidas, conservadas durante todo este tipo, incluso antes de la creación de las Reservas y áreas protegidas...". (Resolución de las 14:50 horas del 20 de febrero de 1998 que responde al Voto No. 113)."