Widerspruch zum Bescheid über die Unzulässigkeit des Bürgerbegehrens

Widerspruch gegen den Bescheid der Gemeinde Abstatt vom 25.4.2019
zur Zulässigkeit des Bürgerbegehrens gegen das geplante Baugebiet „Wehräcker II“

Sehr geehrte <Kommunalaufsicht>,

gegen den auf den 25.3.2019 datierten, tatsächlich aber erst am 30.3.2019 zugestellten widerspruchs-fähigen Bescheid der Gemeinde Abstatt (Anlage 1), mit dem das am 14.1.2019 bei der Gemeinde Abstatt eingereichte Bürgerbegehren gegen das geplante Baugebiet „Wehräcker II“ als unzulässig abgewiesen wurde, legen wir hiermit form- und fristgerecht Widerspruch ein. Wir tun dies in unserer Eigenschaft als Unterzeichner/innen des genannten Bürgerbegehrens, im Übrigen sind wir auch Vertrauenspersonen des Bürgerbegehrens.

Wir beantragen, einen Widerspruchsbescheid zu erlassen, in dem das Bürgerbegehren für zulässig erklärt und die Gemeinde Abstatt zur Durchführung des Bürgerentscheids verpflichtet wird.

Wir beantragen weiterhin, die Gemeinde Abstatt zu verpflichten, die Anhörung der Vertrauens-personen des Bürgerbegehrens im Gemeinderat zu wiederholen, da diese nicht ordnungsgemäß stattgefunden hat. 

Begründung

I. Sachverhalt

Am 14.1.2019 wurde bei der Gemeinde Abstatt ein Bürgerbegehren eingereicht mit der Zielrichtung, einen Bürgerentscheid zu folgender Fragestellung durchzuführen: „Sind Sie dafür, dass die Aufstellung eines Bebauungsplans für das Gebiet „Wehräcker II“ (Flurstücke 1668, 1669/1, 1669, 1670 und 1671) unterbleibt?“ (Anlage 2). Das Bürgerbegehren richtete sich nicht gegen einen Gemeinderatsbeschluss, war also ein sog. „initiierendes“ Bürgerbegehren, da der Gemeinderat zu diesem Zeitpunkt noch keinen einleitenden Verfahrensbeschluss zur Aufstellung eines entsprechenden Bebauungsplans gefasst hatte.

Obschon das Bürgerbegehren bereits eingereicht und dem Gemeinderat bekannt war, fasste der Gemeinderat in der darauf folgenden Woche, am 22.1.2019, einen einleitenden Verfahrensbeschluss zur Aufstellung eines Bebauungsplans für das fragliche Gebiet (Aufstellungsbeschluss). Dies war unstrittig rechtlich möglich, da die in § 21 Absatz 4 Satz 2 GemO definierte Sperrwirkung eines Bürgerbegehrens gegen ihm zuwider laufende Entscheidungen oder deren Vollzug nicht bereits mit dessen Einreichung, sondern erst mit der Feststellung der Zulässigkeit des Bürgerbegehrens einsetzt. Die politische Fragwürdigkeit eines solchen Handelns steht bei einer rein rechtlichen Würdigung, die allein hier vorzunehmen ist, nicht zur Debatte.

Am 12.3.2019 erklärte der Gemeinderat das am 14.1.2019 Bürgerbegehren dann für unzulässig mit der Begründung, das Bürgerbegehren sei durch den Gemeinderatsbeschluss vom 22.1.2019 (Aufstellungs-beschluss) „überholt“. Weiterhin wurde behauptet, das Bürgerbegehren hätte einen Kostendeckungs-vorschlag über zu diesem Zeitpunkt bereits entstandene Planungskosten erbringen müssen und sei auch deshalb unzulässig. Das Unterschriftenformular enthielt bezüglich eines Kostendeckungs-vorschlags den Vermerk: „Ist hier nicht erforderlich, weil durch den Verzicht auf die Aufstellung eines Bebauungsplans keine Kosten entstehen.“

II. Rechtliche Würdigung:

Kann ein initiierendes Bürgerbegehren beliebig ausgehebelt werden?

In der Rechtsliteratur – die umfassendste und sorgfältigste Erörterung dazu bietet die 2016 bei Duncker & Humblot erschienene einschlägige Dissertation von Clara Volkert Plebiszite über Bauleit-pläne – ist völlig unumstritten, dass initiierende Bürgerbegehren gegen die Einleitung eines Verfahrens zur Aufstellung eines Bebauungsplans möglich und zulässig sind. Im vorliegenden Fall ist auch unstrittig, dass es sich um ein initiierendes Bürgerbegehren handelt, weil das Bürgerbegehren mit sämtlichen Unterschriften bereits eingereicht wurde, bevor ein Gemeinderatsbeschluss gefasst wurde. Es wurden keine Unterschriften „auf Vorrat“ gesammelt, um erst nach einem eventuellen Gemeinde-ratsbeschluss eingereicht zu werden.

Die zur Diskussion stehende und auch von der Kommunalaufsicht zu erörternde Frage ist deshalb lediglich, ob im Prinzip jedes beliebige initiierende Bürgerbegehren dadurch ausgehebelt werden kann, dass der Gemeinderat nach dessen Einreichung das Gegenteil beschließt und dann das Bürgerbegehren als „überholt“ und deshalb „unzulässig“ schubladisiert. Wäre dies so, dann wären initiierende Bürgerbegehren nicht mehr als unverbindliche Bittgesuche, denen ein Gemeinderat nach Belieben entsprechen könnte oder auch nicht. Es lässt sich leicht aufzeigen, dass dies weder dem Willen des Gesetzgebers bei der Etablierung des Instruments Bürgerbegehren entsprach, noch der etablierten Rechtspraxis, noch der ständigen Rechtsprechung. Hier sind Bürgerbegehren – gleich ob initiierend oder kassierend – Instrumente, die auch gegen den politischen Willen eines Gemeinderats einen Bürgerentscheid herbeiführen können und sollen. Dies unterlaufen zu wollen, ist ein rechtsmiss-bräuchlicher Umgang mit Bürgerbegehren.

Der Verwaltungsgerichtshof Baden-Württemberg hat in einem in dieser Hinsicht analogen Fall am 27.6.2011 klar geurteilt (1 S 1509/11): „Ein Aufstellungsbeschluss hätte in der vorliegenden Kon-stellation eines bei Einreichung zulässigen initiierenden Bürgerbegehrens nicht zur Folge, dass dieses Bürgerbegehren nachträglich unzulässig würde und ein Bürgerentscheid nicht mehr möglich wäre. Durch den Aufstellungsbeschluss würden keine unumkehrbaren Fakten geschaffen. Er würde, falls die Bürgerschaft sich im Bürgerentscheid dafür ausspricht, … gegenstandslos und könnte vom Gemeinderat wieder aufgehoben werden.“

Das Kriterium, ob ein bereits eingereichtes Bürgerbegehren durch einen nachträglich, noch vor Eintritt der Sperrwirkung des Bürgerbegehrens gefassten Gemeinderatsbeschluss faktisch annulliert werden kann, ist also, ob durch den Gemeinderatsbeschluss bereits unumkehrbare Fakten geschaffen wurden. Das ist aber vorliegend definitiv nicht der Fall, denn die Gemeinde – so der VGH Baden-Württemberg weiter in seinem Urteil vom 27.6.2011 – „ist grundsätzlich nicht gehindert, ihre Planungsabsicht zu ändern und etwa von einer Bauleitplanung Abstand zu nehmen. Ebenso wenig ist sie verpflichtet, ein einmal begonnenes Planaufstellungsverfahren zu Ende zu führen“.

Die ständige Rechtsprechung des Verfassungsgerichtshofs Baden-Württemberg manifestiert sich z.B. auch bereits in seinem Urteil vom 14.11.1983 (1 S 1204/83) bei einem im Vollzug noch wesentlich weiter fortgeschrittenen Fall:  „Kann bei fortgeschrittener Verwirklichung der baulichen Maßnahme ein Gemeinderatsbeschluss zur Verhinderung dieses Vorhabens noch zulässigerweise gefasst werden, so wird auch einem entsprechenden Bürgerentscheid nicht der Fortschritt der Bauarbeiten entgegen gehalten werden können. Entsprechendes muss für das Bürgerbegehren gelten. Dabei kommt es nicht entscheidend auf den Wortlaut der Fragestellung an, sondern auf dessen Sinn; hier soll die Stadthalle verhindert werden, mag auch im Zeitpunkt des Einreichens des Bürgerbegehrens angesichts der damals bestehenden Planung noch von ‚Bau‘ der Stadthalle gesprochen worden sein. Dass das Bürgerbegehren in diesem Sinn zu verstehen ist, ergibt sich auch aus der Begründung… Ein im jetzigen Zeitpunkt gefasster, insoweit mit dem Begehren korrespondierender Gemeinderatsbeschluss wäre auch jetzt noch rechtlich zulässig, mag er auch derzeit nicht einleuchten. … (Es) kann demnach den Unterzeichnern des Bürgerbegehrens derzeit nicht entgegengehalten werden, der Rohbau sei bereits nahezu vollständig errichtet. Ein Bürgerentscheid könnte nämlich noch durchgeführt werden, bevor die Stadthalle fertiggestellt bzw. in Dienst gestellt wird.“

Der Aushebelung eines eingereichten Bürgerbegehrens durch nachträgliche Gemeinderatsbe-schlüsse vor Eintritt einer Sperrwirkung ist somit immer dann ein rechtlicher Riegel vorgeschoben, wenn der Zielrichtung des Bürgerbegehrens auch noch danach entsprochen werden könnte und noch keine unumkehrbaren Tatsachen geschaffen sind. Das ist hier zweifelsohne gegeben.

Denn ausweislich der Frageformulierung und der Begründung des vorliegenden Bürgerbegehrens ist es dessen Zielrichtung, dass kein Bebauungsplan für das Gebiet „Wehräcker II“ aufgestellt werden soll, „weil wir die gegenwärtige Nutzung beibehalten wollen“. Das Bürgerbegehren ist also nicht lediglich darauf gerichtet – wie im widerspruchsfähigen Bescheid der Gemeinde Abstatt in irreführender Weise behauptet wird – „dass ein Aufstellungsbeschluss für den Bebauungsplan nicht gefasst wird“. Die Zielrichtung des Bürgerbegehrens ist vielmehr weitergehender, nämlich dass die Aufstellung eines Bebauungsplans an sich unterbleibt. Der einleitende Verfahrungsbeschluss des Gemeinderats zur Aufstellung ist aber noch nicht die Aufstellung selbst, sondern lediglich die Einleitung eines Verfahrens. Dieses kann nach wie vor – egal ob durch einen erneuten Gemeinderatsbeschluss oder durch Bürger-entscheid – gestoppt werden. Deshalb ist das eingereichte Bürgerbegehren gemäß der ständigen Rechtsprechung des Verwaltungsgerichtshofs Baden-Württemberg nach wie vor zulässig und zuzu-lassen.

Der widerspruchsfähige Bescheid der Gemeinde Abstatt versäumt es auch, sich mit dem Wortlaut der Gemeindeordnung zum Eintritt der Sperrwirkung eines Bürgerbegehrens auseinanderzusetzen (§ 21 Absatz 4 Satz 2). Demnach bezieht sich die Sperrwirkung darauf, dass „die Gemeindeorgane bis zur Durchführung des Bürgerentscheids keine dem Bürgerbegehren entgegenstehende Entscheidung treffen oder vollziehen dürfen. Diese Unterscheidung zwischen Beschluss und Vollzug macht über-haupt nur dann Sinn, wenn unterstellt wird, dass bereits getroffene Beschlüsse in ihrem Vollzug durch ein Bürgerbegehren gehemmt werden können. Zwar war es im vorliegenden Fall rechtlich noch zulässig, vor Eintritt der Sperrwirkung des Bürgerbegehrens einen verfahrenseinleitenden Beschluss zur Aufstellung eines Bebauungsplans zu fassen, der Vollzug dieses Beschlusses ist aber bis zum Bürgerentscheid blockiert, sobald die Zulässigkeit des Bürgerbegehrens festgestellt wird. Und dieses Bürgerbegehren ist, wie oben dargelegt, zulässig und durch den Aufstellungsbeschluss nicht „über-holt“.  

III. Rechtliche Würdigung: Zur Notwendigkeit eines Kostendeckungsvorschlags

Die einschlägigen Rechtskommentare sind hierzu eindeutig: „Verursacht das Bürgerbegehren keine Kosten, ist kein Deckungsvorschlag erforderlich“ (Aker/Hafner/Notheis, Gemeindeordnung Gemeinde-haushaltsverordnung Baden-Württemberg, S. 277). „Entstehen durch die durch das Bürgerbegehren beantragte Maßnahme keine oder keine nennenswerten Kosten … braucht kein Finanzierungsvorschlag gemacht werden“ (Kunze/Bronner/Katz, Gemeindeordnung für Baden-Württemberg). Die durch das vorliegende Bürgerbegehren beantragte Maßnahme ist ein Planungsverzicht. Im einem analogen Fall hat dazu der Verwaltungsgerichtshof Baden-Württemberg in einem Urteil vom 27.6.2011 festgestellt (1 S 1509/11): „Ein Vorschlag für die Deckung der Kosten war hier entbehrlich, da mit dem Bürgerbegehren ein Planungsverzicht begehrt wird.“

Aufgrund einer Anfrage der Vertrauenspersonen nach § 21 Absatz 3 Satz 5 GemO an den Bürgermeister von Abstatt unmittelbar vor Beginn der Unterschriftensammlung für das Bürgerbegehren hat der Bürgermeister den Vertrauenspersonen mitgeteilt: „Wir gehen derzeit davon aus, dass durch Planungen und Gutachten für den Bebauungsplan Wehräcker II ca. 40.000 Euro an Kosten entstehen.“ Diese Planungskosten sind definitiv nicht durch das Bürgerbegehren verursacht, denn dieses fordert ja nicht Planung, sondern Planungsverzicht. Deshalb braucht das Bürgerbegehren für diese Kosten auch keinen Refinanzierungsvorschlag unterbreiten, erst recht nicht für bereits in der Vergangenheit entstandene Kosten, wie im widerspruchsfähigen Bescheid der Gemeinde Abstatt rechtsirrtümlich gefordert wird.

Sofern Planungskosten noch nicht entstanden sind, würden sie durch die vom Bürgergehren beantragte Maßnahme eingespart, insofern zielt das Bürgerbegehren auf Einsparungen. Sofern Kosten bereits in der Vergangenheit entstanden sind (die vom Bürgermeister im Übrigen niemals konkret beziffert wurden, obwohl er nach § 21 Absatz 3 Satz 5 zur Auskunft verpflichtet ist und um Auskunft gebeten wurde), sollten sie im jeweils geltenden Haushaltsplan der Gemeinde bereits eingeplant und gedeckt gewesen sein. Deshalb ist für bereits entstandene Kosten prinzipiell kein Deckungsvorschlag erforderlich.

Die dürren Ausführungen im widerspruchsfähigen Bescheid der Gemeinde Abstatt zum hier angeblich notwendigen Kostendeckungsvorschlag offenbaren eine erschreckende Unkenntnis der dazu relevanten Rechtsliteratur und Rechtsprechung.   

IV. Zusammenfassung zur Zulässigkeit des Bürgerbegehrens

Die beiden im widerspruchsfähigen Bescheid der Gemeinde Abstatt genannten Gründe für eine angeb-liche Unzulässigkeit des Bürgerbegehrens sind nicht haltbar. Andere Gründe für eine eventuelle Unzu-lässigkeit sind nicht erkennbar und wurden auch nie benannt. Das Bürgerbegehren ist deshalb zulässig. 

IV. Mängel bei der Durchführung der gesetzlich vorgeschriebenen Anhörung

Die im widerspruchsfähigen Bescheid genannte Anhörung der Vertrauenspersonen am 19.2.2019 im Gemeinderat, die gesetzlich vorgeschrieben ist (§ 21 Absatz 4 Satz 1 GemO), wurde nicht ordnungs-gemäß durchgeführt. Zunächst einmal haben wir als Vertrauenspersonen keine Einladung zu unserer eigenen Anhörung bekommen, wir wurden nicht über den Termin informiert. Es war reiner Zufall, dass wir bei dieser Gemeinderatssitzung anwesend waren und spontan etwas sagen konnten.

Der Gesetzgeber hat zum 1.12.2015 diese Anhörung verpflichtend eingeführt, um den Vertrauens-personen bestimmte Rechte zu garantieren, die in der Begründung des Gesetzentwurfs  so beschrieben werden (Landtagsdrucksache 15/7265, S. 19): „Zugleich sollen die Rechte der Vertrauenspersonen des Bürgerbegehrens gestärkt werden, indem diese bei der Entscheidung über die Zulässigkeit des Bürgerbegehrens vom Gemeinderat angehört … werden.“ Und weiter (S. 36): „Es wird geregelt, dass die Vertrauenspersonen zur Entscheidung über die Zulässigkeit des Bürgerbegehrens vom Gemeinderat anzuhören sind. Dadurch soll sichergestellt werden, dass der Gemeinderat bei der Entscheidung über die Zulässigkeit neben der Auffassung der Verwaltung auch die der Vertrauens-personen kennt.“

Dazu stellen wir fest: Bei der Entscheidung über die Zulässigkeit des Bürgerbegehrens (12.3.2019) wurde wir nicht angehört und haben keine Gelegenheit erhalten, unsere Auffassung zur Zulässigkeit des Bürgerbegehrens bei einer Anhörung im Gemeinderat vorzutragen – zumal wir über die Rechts-auffassung der Gemeindeverwaltung zur Zulässigkeit des Bürgerbegehrens zu keinem Zeitpunkt informiert wurden. Wir erhielten auch keine Sitzungsvorlagen im Vorfeld der Gemeinderatssitzung vom 12.3.2015 und diese waren vor der Sitzung auch nirgends öffentlich zugänglich. So wurden wir am 12.3.2019 von der Gemeindeverwaltung überrascht und vor vollendete Tatsachen gestellt, als diese im Gemeinderat plötzlich die Unzulässigkeit des Bürgerbegehrens behauptete, ohne irgendeine Mög-lichkeit, dazu gegenüber dem Gemeinderat im Sinne einer Anhörung Stellung zu nehmen. Bei der Gemeinderatssitzung am 19.2.2019, zu der wir keine Einladung zu einer Anhörung erhielten und wo wir uns nur spontan äußern konnten, stand der Punkt „Zulässigkeitsentscheidung zum Bürger-begehren“ nicht auf der Tagesordnung. Weder Bürgermeister noch Gemeinderäte haben sich am 19.2.2019 zur Frage der Zulässigkeit geäußert, und wir hatten nur Gelegenheit, uns zur Zielrichtung des Bürgerbegehrens zu äußern, nicht jedoch zur Zulässigkeit.

Es steht aufgrund der oben zitierten Begründung des Gesetzentwurfs aus dem Jahr 2015 außer Frage, dass die vom Gesetzgeber intendierte Funktion einer Anhörung „bei der Entscheidung über die Zulässigkeit eines Bürgerbegehrens“ hier nicht gegeben war und deshalb erhebliche Formfehler bei der gesetzlichen Anhörung zu konstatieren sind. Wurde die Anhörung aber nicht ordnungsgemäß durch-geführt, dann hat dies auch Konsequenzen für die Rechtswirksamkeit der Zulassungsentscheidung zum Bürgerbegehren, denn nach § 21 Absatz 4 Satz 1 GemO darf der Gemeinderat die Zulässigkeits-entscheidung erst treffen, nachdem die Vertrauenspersonen ordnungsgemäß angehört wurden, was vorliegend nicht erfolgt ist.

Deshalb beantragen wir, die Gemeinde Abstatt zu verpflichten, die Anhörung der Vertrauenspersonen im Gemeinderat zu wiederholen, bevor erneut über die Zulässigkeit des Bürgerbegehrens entschieden wird. 

Mit freundlichen Grüßen

Dr. Michael Groß                                            Michael Haag                                                   Regina Groß

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Author: Dr. Michael Groß

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