Rechtliche Stellungnahme zur Zulässigkeit des am 14.1.2019 in Abstatt eingereichten Bürgerbegehrens

Eine Stellungnahme von


Dr. Edgar Wunder, Landesvorsitzender
Mehr Demokratie e.V.
Landesverband Baden-Württemberg

In Abstatt liegt folgende Fallkonstellation vor: Am 14.1.2019 wurde bei der Gemeinde ein Bürgerbegehren mit folgender Fragestellung eingereicht (das vollständige Unterschriftenformular liegt uns vor): „Sind Sie dafür, dass die Aufstellung eines Bebauungsplan für das Gebiet ‘Wehräcker II‘ (Flurstücke 1669/1670/1671) unterbleibt?“. Zum Zeitpunkt der Einreichung des Bürgerbegehren hatte der Gemeinderat noch keinen einleitenden Verfahrensbeschluss zur Aufstellung eines solchen Bebauungsplans gefasst. Es handelt sich deshalb um ein sog. „initiierendes Bürgerbegehren“, das unabhängig von einem Gemeinderatsbeschluss eine bestimmte Zielrichtung verfolgt, nämlich auf die Aufstellung eines Bebauungsplans für dieses Gebiet zu verzichten. „Initiierende“ Bürgerbegehren sind zweifelsohne zulässig und in Rechtspraxis und Rechtsprechung fest etabliert. Wenn sie der Gemeinderat nicht in der Sache übernimmt, führen sie genauso zwingend zu einem Bürgerentscheid wie ein sog. „kassierendes“ Bürgerbegehren (also eines, das in der Zielrichtung gegen einen bereits existierenden Gemeinderatsbeschluss gerichtet ist).

Gut eine Woche nach Einreichung des Bürgerbegehrens, am 22.1.2019, hat dann der Gemeinderat einen der Zielrichtung des Bürgerbegehrens entgegen stehenden Beschluss gefasst, nämlich einen einleitenden Verfahrensbeschluss zur Aufstellung eines Bebauungsplans, der die im Bürgerbegehren genannten Flurstücke betrifft. Einen solchen Beschluss zufassen war zu diesem Zeitpunkt rechtlich noch zulässig, weil die in § 21 Absatz 4 Satz 2 GemO vorgesehene Sperrwirkung eines Bürgerbegehrens gegen Beschlüsse oder den Vollzug von Beschlüssen, die seiner Zielrichtung entgegen stehen, erst zwei Monate nach dessen Einreichung greift, also erst ab dem 14.3.2019. In diesen zwei Monaten gefasste Beschlüsse können, wenn sie nicht unumkehrbar sind, ein Bürgerbegehren aber nicht annullieren, das Bürgerbegehren hat selbstverständlich weiterhin Bestand. Andernfalls könnte jedes beliebige Bürgerbegehren sehr leicht ausgehebelt werden, indem der Gemeinderat nach dessen Einreichung, aber vor Eintritt der Sperrwirkung, etwas dem entgegenstehendes beschließt. Das entspricht aber weder der etablierten Rechtspraxis noch der ständigen Rechtsprechung noch dem Willen des Gesetzgebers, dessen Intention es ist, dass auch gegen den Willen eines Gemeinderats ein Bürgerbegehren zwingend zu einem Bürgerentscheid führen kann.

In der Beschlussvorlage zur Gemeinderatssitzung am 12.3.2019 wird die Meinung vertreten, das am 14.1.2019 eingereichte Bürgerbegehren sei „nicht zulässig …, da der Aufstellungsbeschluss bereits am 22. Januar 2019 in der Gemeinderatssitzung gefasst und anschließend bekanntgemacht wurde“, damit sei das Bürgerbegehren „überholt und kann nicht mehr Gegenstand eines Bürgerentscheids sei“. Diese Position ist eindeutig und ohne jeden Zweifel rechtsirrtümlich. Das Bürgerbegehren ist nicht „überholt“ und „unzulässig“ allein dadurch, dass der Gemeinderat nach seiner Einreichung einen Beschluss gefasst hat, der der Zielrichtung des Bürgerbegehrens widerspricht. Eine solche Position hätte bei einer rechtlichen Auseinandersetzung keinerlei Chance.
Vielmehr verhält es sich so, dass der Vollzug des am 22.1.2019 gefassten Gemeinderatsbeschlusses (Einleitung eines Verfahrens zur Aufstellung eines Bebauungsplans) ab dem 14.3.2019 durch das eingereichte Bürgerbegehren gehemmt und gesetzlich untersagt ist. (Deshalb war es zwar rechtlich zulässig, aber politisch unklug, am 22.1.2019 diesen Gemeinderatsbeschluss, der ab dem 14.3.2019 ohnehin nicht weiter vollzogen werden kann, überhaupt zu fassen.) Ein weiterer Vollzug der Aufstellung des Bebauungsplans wäre ab dem 14.3.2019 rechtswidrig und könnte wegen seiner Rechtswidrigkeit der Gemeinde erheblichen Schaden zufügen.

In der Vorlage zur Gemeinderatssitzung am 12.3.2019 wird weiterhin die Meinung vertreten, das Bürgerbegehren sei im Übrigen auch deshalb unzulässig, weil es keinen Kostendeckungsvorschlag enthalte „zu Kosten, die bereits im Vorfeld des Aufstellungsbeschlusses entstanden waren“. Auch diese Position ist eindeutig rechtsirrtümlich, weil ein Bürgerbegehren lediglich zu jenen Kosten einen Deckungsvorschlag zu erbringen hat, die durch die Zielrichtung des Bürgerbegehrens neu entstehen, aber selbstverständlich nicht über bereits in der Vergangenheit entstandene Kosten, da diese durch den geltenden Gemeindehaushalt schon gedeckt sind.
Auch dies ist in der ständigen Rechtsprechung zu Bürgerbegehren völlig eindeutig.
Somit sind beide in der Beschlussvorlage für die Gemeinderatssitzung am 12.3.2019
vorgebrachten Gründe für die vermeintliche Unzulässigkeit des Bürgerbegehrens
eindeutig rechtsirrtümlich. Weitere Gründe für eine unterstellte Unzulässigkeit wurden
nicht vorgebracht und sind auch nicht erkennbar. Nach genauer Prüfung des Unterschriftenformulars kann ich Ihnen versichern, dass dieses Bürgerbegehren definitiv zulässig ist.

Der Gemeinderat hat bei der Entscheidung über die Zulässigkeit eines Bürgerbegehrens keinen Ermessensspielraum, denn es handelt sich um keine politisch nach Opportunität zu beantwortende Frage, sondern eine reine Rechtsfrage. Sie haben keine Möglichkeit, dieses Bürgerbegehren als unzulässig abzuweisen. Ein entsprechender Beschluss wäre rechtswidrig, würde ganz sicher angefochten und dann durch die Kommunalaufsicht korrigiert, spätestens aber vor dem Verwaltungsgericht, mit der Konsequenz, dass Sie den Bürgerentscheid dann doch
durchführen müssten. Ausnahmslos alle Bürgerentscheide des letzten Jahrzehnts in Baden- Württemberg, bei denen ein Gemeinderat ein Bürgerbegehren zunächst rechtswidrig für unzulässig erklärte und dann durch die Kommunalaufsicht oder Verwaltungsgerichte dazu gezwungen wurde, den Bürgerentscheid doch durchzuführen, gingen in der Sache für die Gemeinden verloren. Denn die Bürgerschaft wird durch einen Versuch, die Zulassung eines rechtlich einwandfreien Bürgerbegehrens rechtswidrig zu verweigern, über die eigentliche Sachfrage
hinaus gegen die Gemeinde aufgebracht und erteilt dafür dann beim Bürgerentscheid die Quittung. Das zeigt jede Erfahrung. Ohne einen solchen Vorlauf ist statistisch gesehen die Wahrscheinlichkeit, einen Bürgerentscheid zu gewinnen, etwa 50:50 zwischen Gemeinden und Bürgerinitiativen gleichverteilt.

Wir empfehlen Ihnen dringend, nun wie folgt zu verfahren:
· Stimmen Sie sich unverzüglich mit der Kommunalaufsicht ab, wenn irgendwie möglich noch vor der Gemeinderatssitzung am Dienstagabend. Der Beschlussvorlage zur Gemeinderatssitzung ist indirekt zu entnehmen, dass Sie dies leider bis jetzt offenbar versäumt haben. Wenn die Kommunalaufsicht so kurzfristig noch in der Lage ist, Ihnen einen klaren Bescheid zu geben, werden Sie sehen, dass die Kommunalaufsicht sich sicherlich den von mir angeführten Punkten anschließen wird, denn die Rechtslage ist im vorliegenden Fall für Kenner der Materie wirklich völlig eindeutig.
· Nach Kenntnisnahme dieses Schreibens sollten Sie dem Gemeinderat die Erklärung des Bürgerbegehrens als zulässig empfehlen, weil eine genauere Prüfung der zunächst vermuteten Gründe für eine eventuelle Unzulässigkeit ergeben hat, dass diese rechtlich nicht haltbar sind und das Bürgerbegehren somit zwingend als zulässig eingestuft werden muss, völlig unabhängig von dem, was der Gemeinderat politisch für sinnvoll hält. Sie sind nicht dazu gezwungen, bei der gleichen Gemeinderatssitzung auch bereits einen Bürgerentscheid zu beschließen, dies kann und sollte dann erst bei der darauf folgenden Gemeinderatssitzung auf der Tagesordnung stehen, damit Sie mehr Vorbereitungszeit haben und weil ein entsprechender Beschluss noch nicht auf der Tagesordnung der Einladung der Gemeinderatssitzung vom 12.3.2019 stand.
· Wenn Sie noch unsicher sind, sollten Sie zu Beginn der Sitzung den gesamten TOP 3
(Zulässigkeitsentscheidung zum Bürgerbegehren) von der Tagesordnung nehmen und auf die nächste darauf folgende Gemeinderatssitzung verschieben. Sie benötigen dazu aber eine zumindest mündliche Einverständniserklärung der Vertrauenspersonen des Bürgerbegehrens. Denn § 21 Absatz 4 Satz 1 GemO sieht ohne Ausnahmeregelung vor, dass die Zulässigkeitsentscheidung zu einem Bürgerbegehren spätestens zwei Monate nach dessen Einreichung erfolgen muss. Es gibt jedoch einige wenige Präzedenzfälle (die Gemeinden Neuenburg am Rhein und Schönenberg im Schwarzwald), in denen die zweimonatige Frist im Einvernehmen mit den Vertrauenspersonen und der Kommunalaufsicht etwas überzogen
wurde, um noch offene rechtliche Fragen zu klären.

Weiterhin möchte ich Sie darauf aufmerksam machen, dass Sie der in § 21 Absatz 4 GemO konstituierten Pflicht zu Anhörung der Vertrauenspersonen im Gemeinderat bislang nur unzureichend nachgekommen sind. Es ist der Wille des Gesetzgebers, dass sich die Vertrauenspersonen im Gemeinderat sowohl zur Zielrichtung des Bürgerbegehrens als auch zu rechtlichen Zulässigkeitsfragen des Bürgerbegehrens im Rahmen einer Anhörung im Gemeinderat äußern können, bevor dieser über Zulässigkeit und die etwaige Durchführung eines Bürgerentscheids beschließt. Letzteres – zu rechtlichen Zulässigkeitsfragen – ist aber nur dann angemessen
möglich, wenn die Vertrauenspersonen vorher über die Rechtsauffassung der Gemeinde in Kenntnis gesetzt wurden. Das ist die völlig unstrittige Rechtspraxis, es gab in den letzten Jahren in ganz Baden-Württemberg keinen einzigen davon abweichenden Fall. Insofern ist die bislang bei Ihnen erfolgte Anhörung noch nicht ausreichend. Die Vertrauenspersonen müssen vor einer Zulässigkeitsentscheidung die Gelegenheit haben, sich mit eventuell von einer Gemeindeverwaltung vorgebrachten Argumenten gegen eine Zulässigkeit im Rahmen einer Anhörung auseinandersetzen zu können. Diese Gelegenheit bestand bis jetzt noch nicht und müsste deshalb ggf. in einem zweiten Teil der Anhörung vor einer Zulässigkeitsentscheidung nachgeholt werden.

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Author: Dr. Michael Groß

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