MOPT jurisdiction over outdoor advertising on national roadsCompetencia del MOPT sobre publicidad exterior en vías nacionales

V-. In the third place, the appellants point out that the Department of Road Inspection and Demolitions (Departamento de Inspección Vial y Demoliciones) of the Ministry of Public Works and Transport (Ministerio de Obras Públicas y Transportes), in official communication number 010615 of July 30, two thousand two, certifies that pursuant to the provisions of Executive Decree (Decreto Ejecutivo) number 29523-MOPT and Article 1 of the General Law of Public Roads (Ley General de Caminos Públicos), the appellant possesses the corresponding license because it is located on a national road, whose jurisdiction corresponds to the MOPT and not to the Municipality of Escazú, and therefore the Municipality has violated the principle of legality, Articles 11 of the Political Constitution and 11 of the General Law of Public Administration. First, regarding this point claimed by the appellant, this Collegiate Body must echo what was decided by the Constitutional Chamber of the Supreme Court of Justice, in matters of jurisdictional relations between the Ministry of Public Works and Transport and the Municipal entities; in this sense, the Chamber expressly stated in vote number 5445-99 at 14:30 on July 14, nineteen ninety-nine, in relevant part: "…Urban planning or urban development planning (ordenación urbanística) corresponds to local governments, for which they are empowered to adopt the regulatory plan (plan regulador) and the related urban development regulations in the areas where they must govern, a competence that has been repeatedly recognized by this Tribunal,…, urban planning is closely related to the regulation of public land roads that are intended for public service and use in general, a matter that by legal definition has been assigned to the Ministry of Public Works and Transport, according to the definition in its own creating Law, when it states in relevant part: a) 'The Ministry of Public Works and Transport has as its purpose: […] To regulate and control the rights-of-way of existing or projected highways. To regulate, control, and monitor traffic and transportation on public roads.' Therefore, the regulation of the circulation of vehicles, persons, and livestock on roads, of gas stations and public parking, the definition of road safety, its financing, payment of taxes, fines and traffic rights, and matters relating to the ownership of motor vehicles (Article 1 of the Traffic Law on Public Land Roads) are specific tasks that derive from the general regulation of public roads, which by their nature are national, not local (municipal) matters, and consequently the Executive Branch is responsible for carrying out their regulation; thus, it is the Ministry of Public Works and Transport that dictates and executes the regulation regarding concessions of paid public transportation of persons, defines bus stops and the signage of public roads, for example… This is a task that the MOPT must carry out in coordination with local functions…" What was indicated by the Constitutional Chamber must necessarily be harmonized with the provisions of Article 1, second paragraph, of the General Law of Public Roads, which states in relevant part: "National Road Network (Red Vial Nacional): its administration corresponds to the Ministry of Public Works and Transport, by way of decree…"; by reason of the foregoing, in the case of national road networks, the MOPT has exclusive jurisdiction for their administration. Specifically regarding outdoor advertising (publicidad exterior), Article 10 of Executive Decree number 29253-MOPT of December 20, 2000 (the same that repeals Executive Decree number 26213 of August 14, 1997), states: "Authorization: For the installation, construction, relocation, transfer, and display of advertisements, signs, or notices, by public or private persons, within a strip of land two hundred (200) meters wide, adjacent to both sides of the center line of highways and roads or in those places that in any way have an impact on safety, visibility, panoramic perspective, embellishment (ornato), or the environment, MOPT authorization shall be required.", the first transitional provision of this regulatory body grants natural and legal persons a period of two years to adjust to the provisions of the regulation in question. Upon the entry into force of the new regulations, the representative of Inversiones Chiavari S.A. processed before the Traffic Police Directorate, Department of Road Inspection and Demolitions, the corresponding application for the Installation of an advertising sign, a permit granted under number VP-0402-010002-105, with a validity of five years from July two, two thousand one, (see folios 192, 196 and 197 of the case file), the foregoing taking into consideration that the commercial establishment where the sign will be installed is located opposite National Route number 105. By reason of the foregoing, there is a change in the factual and legal circumstances that motivated administrative act number 4922 of November eighteen, 1998, since as of today the appellants do have the permits issued by the Ministry of Public Works and Transport for outdoor advertising (the competent authority to grant them), in light of the regulations in force as of this date. The change in conditions indicated is what justifies the annulment of agreement number 155 of the Municipal Council of Escazú adopted in Session of February 20, two thousand one; notwithstanding the foregoing, the appellant must in due course process before the Municipality the construction permit necessary to create the structure that will support the advertising sign. It is necessary to point out that, in the case of cantonal road networks, in light of the provisions of Article 1, paragraph II, of the Law of Public Roads, the jurisdiction for their administration corresponds to Local Governments, which may directly apply the provisions of their Regulatory Plans (Planes Reguladores) in relation to the Construction Law and Regulations, in terms of solving problems such as the one that occupies us today, regarding outdoor advertising; because in this area jurisdiction by legal definition is local, not national. VI-. Finally, regarding resolution Dame-06-99, which ordered the immediate dismantling of the cited billboard (valla publicitaria), considering it an imminent danger to the life, safety, health, and property of passersby and neighbors of the area, the appellants argue that the municipality violated the principle of legality, since it did not make the corresponding prior warnings before ordering the dismantling. In relation to this point, it is a peacefully accepted fact that in January two thousand, strong winds caused the billboard to give way and finally fall onto the roof of the appellants' premises; what happened on that date truly justifies the action of a totally preventive nature taken by the municipal authorities. Notwithstanding the foregoing, it is recorded in the case file at folio 188 that the appellants submitted for the knowledge of the Ministry of Public Works and Transport the approval of the structural design registered in the Federated College of Engineers and Architects of Costa Rica under number OC-309266, thereby complying with the provisions of Article 20, numeral one, of Regulation 29253, and the design presented by them was approved by the General Directorate of Traffic Engineering, Department of Studies and Designs. Making it clear that the installation of the structure must be authorized by the Department of Road Inspection of the General Directorate of Traffic Police (Articles 20 and 21 of Regulation 29253). By reason of the foregoing, given the change in factual and legal circumstances that have occurred within the case file, this Collegiate Body considers that the challenged resolution Dame-006-99 (Ordinary Session No. 155-2001) must be annulled, making it clear that in order to erect the new structure, the appellant must first have each and every one of the required authorizations, without neglecting the respective construction permit that falls under the jurisdiction of the Municipality of Escazú. (Article 74 of the Construction Law)." ...regular, control, and monitor traffic and transport on public roads." Therefore, the regulation of the circulation of vehicles, persons, and livestock on roads, of gas stations and public parking lots, the definition of road safety, its financing, payment of taxes, fines, and transit fees, and matters relating to the ownership of motor vehicles (Article 1 of the Ley de Tránsito por las Vías Públicas Terrestres) are specific tasks that derive from the general ordering of public roads, which by their nature are national, not local (municipal), matters, and which consequently the Executive Branch is responsible for regulating; such that it is the Ministry of Public Works and Transport (Ministerio de Obras Públicas y Transportes, MOPT) that dictates and executes the ordering concerning concessions of remunerated public transportation of persons, defines bus stops and the signage of public roads, for example... This is a task that MOPT must carry out in coordination with local functions..." What was indicated by the Constitutional Chamber must necessarily be harmonized with the provisions of Article 1, second paragraph, of the Ley General de Caminos Públicos, which states, in relevant part: "National Road Network: its administration corresponds to the Ministry of Public Works and Transport, by way of decree..."; by reason of the foregoing, in the case of national road networks, MOPT has exclusive competence for their administration. Specifically regarding outdoor advertising (publicidad exterior), Article 10 of Executive Decree No. 29253-MOPT of December 20, 2000 (which repeals Executive Decree No. 26213 of August 14, 1997), states: "Authorization: For the installation, construction, relocation, transfer, and exhibition of advertisements, signs, or notices, by public or private persons, within a strip of land two hundred (200) meters wide, adjacent to both sides of the center line of highways and roads, or in those places that in any way have an impact on safety, visibility, panoramic perspective, ornamentation, or the environment, authorization from MOPT shall be required.", the first transitory provision of this regulatory body grants natural and legal persons a period of two years to comply with the provisions of the regulation under discussion. Upon the entry into force of the new regulation, the representative of Inversiones Chiavari S.A. filed the corresponding application for the installation of an advertising sign before the Traffic Police Directorate, Department of Road Inspection and Demolitions (Dirección de Policía de Tránsito, Departamento de Inspección Vial y Demoliciones), a permit granted under number VP-0402-010002-105, with a validity of five years from July 2, 2001 (see folios 192, 196, and 197 of the case file), the foregoing considering that the commercial establishment where the sign will be installed is located opposite National Route number 105.

By reason of the foregoing, there is a change in the factual and legal circumstances that gave rise to administrative act number 4922 of November 18, 1998, since as of today the appellants do have the permits issued by the Ministry of Public Works and Transport for outdoor advertising (the competent authority to grant them), in light of the regulations in force as of this date. The change in conditions indicated is what justifies the annulment of agreement number 155 of the Municipal Council of Escazú adopted in Session of February 20, 2001; notwithstanding the foregoing, the appellant must in due course process with the Municipality the necessary building permit (permiso de construcción) to create the structure that will support the advertising sign. It is necessary to point out that, in the case of cantonal road networks, in light of the provisions of Article 1, paragraph II of the Ley de Caminos Públicos, the competence for their administration corresponds to the Local Governments, which may directly apply the provisions of their Regulatory Plans (Planes Reguladores) in relation to the Ley de Construcciones and its Regulations, with regard to solving problems such as the one at hand today, relating to outdoor advertising; because in this area, competence by definition of law is local, not national.

**VI-.** Finally, with regard to resolution Dame-06-99, which ordered the immediate dismantling of the cited billboard, considering it an imminent danger to the life, safety, health, and property of passersby and residents of the place, the appellants argue that the municipality violated the principle of legality, since it did not make the corresponding warnings prior to ordering the dismantling. With regard to this point, it is a fact peacefully accepted that in January 2000, strong winds caused the billboard to give way and finally fall onto the roof of the appellants' premises; what occurred on that date truly justifies the action of a totally preventive nature taken by the municipal authorities. Notwithstanding the foregoing, the case file shows at folio 188 that the appellants submitted for the consideration of the Ministry of Public Works and Transport the approval of the structural design registered with the Colegio Federado de Ingenieros y Arquitectos de Costa Rica under number OC-309266, thereby complying with the provisions of Article 20, clause one of Regulation 29253, and the design presented by them was approved by the General Directorate of Traffic Engineering, Department of Studies and Designs (Dirección General de Ingeniería de Tránsito, Departamento de Estudios y Diseños). Making it clear that the installation of the structure must be authorized by the Department of Road Inspection (Departamento de Inspección Vial) of the General Directorate of Traffic Police (Dirección General de Policía de Tránsito) (Articles 20 and 21 of Regulation 29253). By reason of the foregoing, given the change in the factual and legal circumstances that have occurred in the case file, this Collegiate Body considers that the challenged resolution Dame-006-99 (Ordinary Session No. 155-2001) must be annulled, making it clear that in order to place the new structure, the appellant must first have each and every one of the required authorizations, without overlooking the respective building permit (permiso de construcción) that is the responsibility of the Municipality of Escazú (Article 74 of the Ley de Construcciones)."

"V-. En tercer lugar señalan los recurrentes que el Departamento de Inspección Vial y Demoliciones del Ministerio de Obras Públicas y Transportes, en oficio número 010615 del 30 de julio del año dos mil dos, certifica que al tenor de lo establecido en el Decreto Ejecutivo número 29523-MOPT y el 1 de la Ley General de Caminos Públicos, la recurrente posee la licencia correspondiente por encontrarse en una vía nacional, cuya jurisdicción le corresponde al MOPT y no a la Municipalidad de Escazú, por lo que existe por parte de la Municipalidad una violación al principio de legalidad, artículos 11 de la Constitución Política y 11 de la Ley General de la Administración Pública. En primer término en relación con este extremo reclamado por el recurrente, debe este Organo Colegiado, hacer eco de lo resuelto por la Sala Constitucional de la Corte Suprema de Justicia, en materia de relaciones de competencia entre el Ministerio de Obras Públicas y Transportes y los entes Municipales, en este sentido en forma expresa la Sala en el voto número 5445-99 de las 14 horas 30 minutos del 14 de julio de mil novecientos noventa y nueve, en lo que interesa señaló: “…Corresponde a los gobiernos locales la ordenación urbanística o planificación urbana, para lo cual se le faculta para adoptar el plan regulador y los reglamentos de desarrollo urbano conexos en las áreas donde debe regir, competencia que ha sido reconocida en forma reiterada por este Tribunal,…, la ordenación urbanística está muy relacionada con la ordenación de las vías públicas terrestres que están destinadas al servicio y uso público en general, materia que por definición legal ha sido asignada al Ministerio de Obras Públicas y Transportes, según definición de la propia Ley de su creación, cuando indica en lo que interesa: a) ” El Ministerio de Obras Públicas y Transportes tiene por objeto: […] Regular y controlar los derechos de vía de las carreteras existentes o en proyecto. Regular, controlar y vigilar el tránsito y el transporte por los caminos públicos.” Por lo tanto la regulación de la circulación de los vehículos, personas y semovientes en las vías, de las gasolineras y estacionamientos públicos, la definición de la seguridad vial, su financiamiento, pago de impuestos, multas y derechos de tránsito y lo referente a la propiedad de los vehículos automotores (artículo 1° de la Ley de Tránsito por las Vías Públicas Terrestres) son tareas específicas que derivan de la ordenación general de las vías públicas, que por su naturaleza son temas nacionales, no locales (municipales), y que en consecuencia le corresponde al Poder Ejecutivo llevar a cabo su regulación; de manera que es el Ministerio de Obras Públicas y Transportes quien dicta y ejecuta la ordenación referente a las concesiones de transporte público remunerado de personas, define las paradas de buses y la señalización de las vías públicas, por ejemplo…Esta es una labor que el MOPT debe desarrollar en coordinación con las funciones locales…” Lo señalado por la Sala Constitucional debe armonizarse necesariamente por lo dispuesto en el artículo 1° párrafo segundo de la Ley General de Caminos Públicos, el que señala en lo que interesa: “Red Vial Nacional: corresponde su administración al Ministerio de Obras Públicas y Transportes, por vía de decreto…”; en razón de lo anterior tratándose de redes viales nacionales corresponde al MOPT, la competencia exclusiva para su administración. Propiamente en materia de publicidad exterior, el artículo 10 del Decreto Ejecutivo número 29253-MOPT del 20 de Diciembre del 2000 (mismo que deroga el Decreto Ejecutivo número 26213 del 14 de agosto de 1997), señala: “ Autorización: Para la instalación, construcción, relocalización, traslados y exhibición de anuncios, rótulos o avisos, por parte de las personas públicas o privadas, en una faja de terreno de doscientos (200) metros de ancho, adyacentes a ambos lados de la línea de centro de las carreteras y caminos o en aquellos lugares que de alguna forma tengan incidencia sobre la seguridad, la visibilidad, la perspectiva panorámica, el ornato o el medio ambiente, se requerirá autorización del MOPT. “ , el transitorio primero de este cuerpo normativo otorga a las personas físicas y jurídicas un plazo de dos años a efecto de ajustarse a lo dispuesto por el reglamento en comentario. Ante la entrada en vigencia de la nueva normativa, el representante de Inversiones Chiavari S.A., gestionó ante la Dirección de Policía de Transito, Departamento de Inspección Vial y Demoliciones, la correspondiente solicitud para la Instalación de un rotulo publicitario, permiso concedido bajo el número VP-0402-010002-105, con una vigencia de cinco años a partir del dos de julio del dos mil uno, (ver folios 192, 196 y 197 de los autos), lo anterior tomando en consideración que el establecimiento comercial donde se instalará el rótulo se encuentra ubicado frente a la Ruta Nacional número 105. En razón de lo anterior, existe un cambio en los supuestos de hecho y de derecho que motivaron el acto administrativo número 4922 del dieciocho de noviembre de 1998, pues al día de hoy los recurrentes sí cuentan con los permisos emanados de Ministerio de Obras Públicas y Transportes para la publicidad exterior, (autoridad competente para conceder los mismos), a la luz de la normativa vigente a la fecha. El cambio de condiciones señalado, es el que justifica la anulación del acuerdo número 155 del Concejo Municipal de Escazù tomado en Sesión del 20 de febrero del dos mil uno; no obstante lo anterior deberá la parte recurrente en su momento tramitar ante la Municipalidad el permiso de construcción necesario para crear la estructura que soportará el rótulo publicitario. Es menester señalar, que tratàndose de redes viales cantonales, a la luz de lo dispuesto por el artículo 1 párrafo II de la Ley de Caminos Públicos, la competencia para la administración de las mismas, corresponde a los Gobiernos Locales, los cuales podrán aplicar en forma directa lo dispuesto por sus Planes Reguladores en relación, Ley de Construcciones y Reglamentos, en lo que se refiere a solucionar problemas como el que nos ocupa hoy, referido a la publicidad exterior; pues en este ámbito la competencia por definición de ley es local no nacional. VI-. Finalmente, en lo que se refiere a resolución Dame-06-99, misma que ordenó el desmantelamiento inmediato de la valla publicitaria, citada, por considerarla un peligro inminente contra la vida, seguridad, salud y propiedad de los transeúntes y vecinos del lugar, argumentan los recurrentes que la municipalidad violentó el principio de legalidad, toda vez que no realizó las prevenciones correspondientes de previo a ordenar el desmantelamiento. Con relación a este extremo, es un hecho pacíficamente aceptado que en enero del dos mil los fuertes vientos hicieron que la valla publicitaria cediera y finalmente cayera sobre el techo del local de los recurrentes; lo sucedido en aquella fecha realmente justifica la acciòn de naturaleza totalmente preventiva tomada por las autoridades municipales. No obstante lo anterior, consta en autos a folio 188 que los recurrentes sometieron a conocimiento del Ministerio de Obras Públicas y Transportes, la aprobación del diseño estructural registrado en el Colegio Federado de Ingenieros y Arquitectos de Costa Rica bajo el número OC-309266, con lo que cumplió con lo previsto en el artículo 20 numeral uno del Reglamento 29253, y se aprobó por parte de la Dirección General de Ingeniería de Tránsito Departamento de Estudios y Diseños, el diseño presentado por ellos. Dejando claro que la instalación de la estructura deberá ser autorizada por el Departamento de Inspección Vial de la Dirección General de Policía de Tránsito (arti 20 y 21 del Reglamento 29253) . En razón de lo anterior ante el cambio de circunstancias de hecho y de derecho, acaecidas dentro de los autos, considera este Organo Colegiado que la resolución impugnada Dame-006-99 (Sesión Ordinaria Nª 155-2001) , debe de ser anulada, dejando claro que a efecto de colocar la nueva estructura previamente deberá el recurrente contar con todas y cada una de las autorizaciones requeridas, sin dejar de lado el respectivo permiso de construcción que le compete a la Municipalidad de Escazù. ( art 74 de la Ley de Construcciones)."