Reforma el Código de Aguas es publicada tras 11 años en el Congreso
Se publicó la ley N°21.435, que introduce importantes modificaciones al Código de Aguas. Esta ley se encontraba en tramitación en el Congreso desde marzo de 2011.
Las circunstancias que motivaron la moción parlamentaria, según consta en la historia fidedigna de la ley, fueron los inminentes problemas de equidad en el acceso al agua y sustentabilidad ambiental que enfrenta Chile en cuanto a la gestión de las aguas.
Según se señaló, Chile presentaba diversos y complejos desafíos relacionados con el agua, debido a su diversidad geográfica y climática. Por ejemplo, en la zona norte, los recursos hídricos subterráneos y superficiales, son muy escasos.
Por otro lado, uno de los argumentos más fuertes, fue el que decía relación con que, en nuestro país, el uso del agua estaba focalizado en los usos agrícolas, mineros, eléctricos, etc.
En esa línea, y tal como señaló el Senado de la República de Chile, esta reforma busca reforzar el carácter de bien público del agua y consagrar una nueva regulación para la constitución, ejercicio y extinción de los derechos, a la vez que protege y fortalece la función que cumple el agua dulce en los ecosistemas terrestres. A su vez, establece como prioridad el acceso al agua para el consumo humano y doméstico.
De esa forma, los principales ejes que aborda esta reforma son:
Derechos de aprovechamiento de aguas: nuevo enfoque, temporalidad y extinción.
Esta ley modifica las disposiciones del artículo 5 del Código de Aguas, estableciendo que el agua, en todos sus estados, serán bienes nacionales de uso público, y que, en consecuencia, su dominio y uso corresponde a todos los habitantes de la nación.
En esa línea, se modifica el fundamento del otorgamiento de derechos de aprovechamiento de agua, señalando que se entregarán siempre en función del interés público, con el objetivo de salvaguardar que la autoridad resguarde el consumo humano, la disponibilidad de las aguas, etc.
Consagra así mismo, el acceso al agua potable y saneamiento como un derecho humano que debe ser garantizado por el Estado.
En ese sentido, la mayoría de las modificaciones de esta ley tienen como enfoque principal la protección del medioambiente y la preservación del agua.
Otra de las modificaciones de mayor impacto, es que ahora los derechos de aprovechamiento de aguas no serán permanentes, sino que serán por esencia, temporales.
Así, los derechos de aprovechamiento de aguas que se originen en una concesión serán de 30 años (si la autoridad considera que debe otorgarlo por un plazo inferior puede hacerlo a través de resolución fundada).
Ahora, sobre la extinción de los derechos de aprovechamiento de aguas, el nuevo art. 6 bis señala que se extinguirán cuando no se haga uso de ellos en los términos del art. 129 bis 9º. El plazo será de 5 años para los derechos consuntivos y 10 años para los no consuntivos.
En este mismo artículo, se inserta una nueva obligación, que dice relación con que se debe informar a la Dirección General de Aguas cada vez que exista un cambio de uso del derecho de aprovechamiento de agua, so pena de ser sancionado con una multa.
Constitución de los derechos de aprovechamiento de aguas.
El primer cambio importante que se avista en el capítulo tercero es que su título ya no es “de la adquisición del derecho de aprovechamiento”, sino que dice “de la constitución del derecho de aprovechamiento”.
Abre también la posibilidad de que cualquier persona pueda extraer aguas provenientes de una vertiente, nacientes cordilleranas, o de cualquier forma de recarga natural que aflore superficialmente, cuando sea por necesidades humanas de bebida y uso doméstico de subsistencia. Eso sí, si el ejercicio de este beneficio causar más perjuicio que beneficio, debe suspenderse de inmediato.
Por otro lado, otra modificación importante, es la relativa a lo que debe inscribirse en el Registro de Propiedad de Aguas del Conservador de Bienes Raíces. Se eliminan los primeros tres numerales que señalaban:
- Los títulos constitutivos de una organización de usuarios
- Los acuerdos y resoluciones que causen ejecutoria y que determinen los derechos de cada comunero en las gestiones realizadas ante la Justicia Ordinaria para el reconocimiento de las comunidades, en conformidad al Título III, párrafo 1°, del Libro II;
- Los documentos que acrediten la alteración de la distribución de los derechos de aprovechamiento sometidos al régimen de organización de usuarios.
Y, en el numeral 4to, relativo a las “escrituras públicas que contengan el acto formal del otorgamiento definitivo de un derecho de aprovechamiento, así como las que contengan la renuncia a tales derechos”, se reemplaza “escrituras públicas”, por “instrumentos públicos”.
Patentes, sus pagos y efectos
Se realizan una serie de modificaciones en cuanto al pago de patentes que por temas de extensión no se pueden abordar en su totalidad.
Se modifica el art. 129 bis 4° y 5°, que contiene las reglas del pago de patentes. Anteriormente se establecían reglas distintas dependiendo la región en que estuvieran los caudales sobre los que se constituye el derecho. Ahora, dicha distinción fue eliminada, quedando sólo la distinción por antigüedad de los derechos. Queda del siguiente tenor:
Art. 129 bis 4° “Los derechos de aprovechamiento no consuntivos de ejercicio permanente respecto de los cuales su titular no haya construido las obras señaladas en el inciso primero del artículo 129 bis 9, estarán afectos, en la proporción no utilizada de sus respectivos caudales, al pago de una patente anual a beneficio fiscal
1.- La patente se regirá por las siguientes reglas:
a) En los primeros cinco años contados desde la fecha en que se constituya, reconozca o autorice el derecho de aprovechamiento de aguas, la patente será equivalente, en unidades tributarias mensuales, al valor que resulte de la siguiente operación aritmética:
Valor anual de la patente en UTM=0.33xQxH.
El factor Q corresponderá al caudal medio no utilizado expresado en metros cúbicos por segundo, y el factor H, al desnivel entre los puntos de captación y de restitución expresado en metros.
b) Entre los años sexto y décimo inclusive, la patente calculada de conformidad con la letra anterior se multiplicará por el factor 2, y
c) Entre los años undécimo y décimo quinto inclusive, la patente calculada de conformidad con la letra a) precedente se multiplicará por el factor 4, y en los quinquenios siguientes su monto se calculará duplicando el factor anterior, y así sucesivamente (…)”.
Otro artículo importante es el art. 124 bis 5° señala: “Los derechos de aprovechamiento consuntivos de ejercicio permanente, respecto de los cuales su titular no haya construido las obras señaladas en el inciso primero del artículo 129 bis 9, estarán afectos, en la proporción no utilizada de sus respectivos caudales medios, al pago de una patente anual a beneficio fiscal» (…). A continuación, señala extensamente el detalle sobre dichas patentes.
El art. 129 bis 9º señala detalladamente quienes quedan afectos y exentos del pago de las patentes que se tratan.
Como sanción al no pago de las patentes cuando corresponda hacerlo, se modifica el art. 129 bis 11°, que señalaba que se iniciaría un procedimiento judicial para su cobro, ahora señala que se iniciará un procedimiento judicial para efectuar el remate público de ese derecho. También agrega que dicha acción prescribe en el plazo de 3 años, contados desde el 1 de abril del año en que debió pagarse la patente.
Además, se modifica el artículo 129 bis 12°, en cuanto al procedimiento de cobro de patentes no pagadas por parte de la Tesorería General de la República, se agrega el art. 129 bis A, donde se especifica las posibilidades de oposición a la ejecución por parte del deudor de la patente, y se modifica el art. 129 bis 3°, detallando más en profundidad el tema de la subasta de los derechos cuyas patentes no han sido pagadas.
Finalmente, se agrega el nuevo artículo 134 bis, que explica detalladamente como es el procedimiento a través del cual la Dirección General de Aguas respecto de aquellos derechos que se encuentran sometidos a un procedimiento de extinción.
Otras modificaciones importantes
Es ligeramente modificado el art. 27 del Código, en cuanto a la expropiación de los derechos de aprovechamiento. Se establece que el Ministerio de Obras Públicas podrá expropiarlos tanto para satisfacer menesteres domésticos, como para satisfacer la conservación de los recursos hídricos, cuando no existan otros medios para obtener el agua. Se establece que para dicho acto, deberá dejarse al expropiado solo el agua necesaria para satisfacer sus usos domésticos de subsistencia.
Se inserta también, el nuevo art. 56 bis, que establece reglas especiales respecto de las aguas halladas por concesionarios mineros en las labores de exploración y explotación. Señala que podrán ser utilizados por ellos, en la medida en que sean necesarias para las faenas y que sean informadas para su registro en la Dirección General de Aguas, dentro de noventa días desde su hallazgo. El uso y goce de dichas aguas, se extinguirá por el cierre de las obras mineras.
Por otro lado, se inserta el artículo 129 bis 1 A, que crea los “derechos de aprovechamiento in situ o no extractivos”, que son aquellos respecto de los cuales su titular declaró que “serán aprovechadas en su propia fuente sin requerir su extracción, ya sea para fines de conservación ambiental, o para el desarrollo de un proyecto de turismo sustentable, recreacional o deportivo”. En el mismo artículo se tratan las reglas especiales y beneficios de dicho tipo de derechos de aprovechamiento.
Se inserta además, un nuevo artículo 293 bis, establece que cada cuenca del país, deberá contar con un Plan Estratégico de Recursos Hídricos, tendiente a propiciar la seguridad hídrica en el contexto de las restricciones asociadas al cambio climático. El mismo artículo establece en detalle los aspectos con los que debe contar.
Por otro lado, a través del nuevo art. 293 ter, se crea un Fondo para la Investigación, Innovación y Educación en Recursos Hídricos, dependiente del Ministerio de Obras Públicas. El fondo estará destinado a financiar las investigaciones necesarias para la adopción de medidas necesarias para la gestión de recursos hídricos.
Disposiciones transitorias
Finalmente, es importante tener presente los plazos importantes que se establecen en las disposiciones transitorias de esta ley, a saber:
El artículo primero transitorio, establece que los derechos de aprovechamiento de aguas reconocidos y constituidos con anterioridad a la entrada en vigencia de esta ley, continuarán estando vigentes, y sólo se extinguirán conforme lo indican los art. 129 bis 4 y 129 bis 5, esto es, la no construcción de las obras señaladas en el art. 129 bis 9. También caducarán por la no inscripción en el Registro de Propiedad de Aguas del Conservador de Bienes Raíces respectivo.
El artículo segundo transitorio señala que los derechos de aprovechamiento de aguas que hayan sido concedidos por la autoridad competente a la fecha de entrada en vigencia de esta ley, pero no se hayan inscrito en el Registro de Propiedad de Aguas, tendrán el plazo de 18 meses para realizar la inscripción, desde que se publica esta ley.
Por otro lado, los derechos constituidos por autoridad competente antes de la entrada en vigencia de esta ley, que hayan sido inscritos en el Registro de Propiedad del CBR, pero no incluidos en el Catastro Público de Aguas, deberán hacerlo ante la Dirección General de Aguas en el mismo plazo anterior.
El artículo sexto transitorio, se extrae en su tenor literal para su mejor comprensión:
“Los derechos de aprovechamiento no consuntivos que a la entrada en vigencia de esta ley estén incorporados en el listado que fija los derechos de aprovechamiento afectos al pago de patente por no uso de las aguas continuarán sometidos a las normas de la ley N° 20.017; sin embargo, a partir del año décimo sexto se les aplicará el literal c) del numeral 1 del artículo 129 bis 4 del Código de Aguas.
Del mismo modo, los derechos de aprovechamiento consuntivos que a la entrada en vigencia de esta ley estén incorporados en el listado previamente referido continuarán sometidos a las normas de la ley antes citada; sin embargo, a partir del año undécimo se les aplicará el literal c) del artículo 129 bis 5 del Código de Aguas”.
En cuanto a las concesiones mineras de que se habló anteriormente, el artículo octavo transitorio, señala que “Los titulares de pertenencias mineras y de concesiones mineras de exploración que estuvieren utilizando las aguas halladas en virtud de sus labores mineras, deberán, antes de cumplirse quince meses contados desde la entrada en vigencia de esta ley, informar a la Dirección General de Aguas los volúmenes extraídos, con la forma y los requisitos prescritos en el artículo 56 bis”.
Finalmente, otro artículo transitorio relevante, es el 15°, que señala que “Dentro del plazo máximo de cinco años contado desde la publicación de esta ley, todo titular de derechos de aprovechamiento de aguas tendrá la obligación de anotar al margen de la correspondiente inscripción de su derecho en el Registro de Propiedad de Aguas del Conservador de Bienes Raíces respectivo el comprobante de su inscripción en el Registro Público de Derechos de Aprovechamiento de Aguas al que se refiere el artículo 122. A partir de la referida fecha, el Conservador de Bienes Raíces no podrá realizar la inscripción de una transferencia de propiedad del derecho, sin contar con el mencionado comprobante de inscripción”.
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