| niet juridisch afhandelen, maar bezwaren wegnemen |
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| Geschreven door Pieter Hilhorst |
| Zaterdag 31 Januari 2009 17:16 |
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De beste vindingen zijn ongelooflijk simpel. Het is een kwestie van het gebruik van het gezonde verstand. Na invoering rest maar één conclusie: waarom hebben we dat niet veel eerder gedaan? Een voorbeeld van zo’n simpele verbetering is een andere omgang met klachten en bezwaren van burgers. In de wet staat een wettelijke termijn van 14 weken geformuleerd waarbinnen de overheid een bezwaar moet afhandelen. Om die termijn te halen zijn bij alle overheden procedures ingesteld. Burgers krijgen een ontvangstbevestiging. De betrokken ambtenaren winnen advies in bij een adviescommissie. Zo nodig houden ze hoorzittingen. Maar de meest voor de hand liggende reactie op een klacht of een bezwaar bleef achterwege. Die meest logische reactie is om een burger die klachten heeft of een bezwaar indient even op te bellen of er naar toe te gaan om te vragen wat er aan de hand is en om te onderzoeken of er een aanvaardbare oplossing kan worden gevonden zonder juridische heisa. Voor de nieuwe aanpak bestaan verschillende namen. In Noord-Brabant noemen ze ’de andere aanpak van bezwaren’. In Zwolle spreken ze over (pre)mediation en bij het ministerie van Binnenlandse Zaken past de aanpak in het streven om de burger ‘een luisterend oor’ te bieden. Maar de analyse is steeds gelijk. Een strikt juridische afhandeling van klachten en bezwaren vreet energie van ambtenaren en van burgers, kost klauwen met geld en lost de achterliggende problemen niet op. Irene Pruim werkt voor de gemeente Zwolle met de nieuwe methodiek. Ze vertelt over een huiseigenaar die een exploitatievergunning had aangevraagd voor de verhuur van kamers. De benodigde kamervergunning had hij al, dus hij had ook al huurders. De buren hadden bezwaar aangetekend tegen de exploitatievergunning. Door contact te zoeken met de indieners van het bezwaar kwam Pruim erachter dat de buren bang waren voor geluidsoverlast. Het is haar gelukt om de buren en de eigenaar om de tafel te krijgen. Ze hebben afspraken gemaakt over de geluidsoverlast, waarna de buren hun bezwaarschrift hebben ingetrokken. De gedeputeerde op bezoek Een strikt juridische beoordeling van een bezwaarschrift kan maar twee uitkomsten hebben. Het bezwaar wordt gehonoreerd of verworpen. De nieuwe aanpak biedt ruimte voor creatieve oplossingen. Een burger die bezwaar maakt tegen de afwijzing van een bouwvergunning krijgt uitleg dat als hij er geen puntdak opzet, maar een plat dak, het schuurtje wel gebouwd kan worden. Een Zwols kantoor dat op de voorgevel geen reclame mocht maken van de welstandscommissie, kreeg wel toestemming om reclame goed zichtbaar op zijgevels aan de achterzijde te hangen. Soms blijkt de oplossing in onverwachte hoek te moeten worden gezocht. Ritchie Trieling van de provincie Noord-Brabant vertelt over een aantal burgers die gezamenlijk nieuwbouw realiseerden. De provincie heeft een subsidieregeling om dit zogenaamde particuliere opdrachtgeverschap in de bouw te stimuleren. Omdat zij niet aan alle voorwaarden voldeden kwamen ze niet voor subsidie in aanmerking. Tegen die afwijzing hadden ze bezwaar aangetekend. De indieners erkenden dat ze niet aan alle voorwaarden voldeden, maar ze zagen zichzelf als voortrekkers en wilden daar erkenning voor. Vervolgens heeft de gedeputeerde aangeboden om de nieuwbouw te openen. Dat vonden ze geweldig en toen hebben ze het bezwaarschrift ingetrokken. Als niet gemakkelijk een oplossing kan worden gevonden kan ook een externe mediator worden ingezet. Een zaak ging over een milieuvergunning voor een bedrijf. Onder begeleiding van een mediator zijn toen gezamenlijke afspraken gemaakt tussen het bedrijf, de omwonenden en de provincie, naar tevredenheid van alle betrokkenen. Vaak is zo’n verregaande aanpak niet nodig. Uitleg geven over de beslissing is in veel gevallen voldoende. Trieling: “Mensen zijn al heel blij dat ze hun verhaal kunnen doen. Iemand zei tegen me: ‘Eindelijk heeft de overheid een menselijk gezicht gekregen.” In Zwolle komen 700 bezwaarschriften per jaar binnen. Door de nieuwe aanpak wordt in de helft van de gevallen het bezwaarschrift ingetrokken. Noord-Brabant scoort ook vijftig procent. Uit onderzoek van het Ministerie van Binnenlandse Zaken blijkt de nieuwe aanpak een kostenbesparing van 27 % oplevert. Die besparing schuilt vooral in tijdswinst. Ook voor de burgers. Die besteden op dit moment 4 miljoen uur aan klachten en bezwaren. De tevredenheid van de betrokken burgers en ambtenaren neemt met 20 % toe. Dwangsom Gevraagd naar een mogelijk nadeel van de nieuwe werkwijze stelt Pruim dat er in overheidsland graag gewerkt wordt met prestatieafspraken. Over het percentage ingetrokken bezwaarschriften kunnen geen targets vooraf worden gesteld. Dan wordt het luisteren naar het verhaal van burgers al snel ingeruild voor het ompraten van burgers. Een ander mogelijk probleem schuilt in de Wet dwangsom die januari 2010 van kracht wordt. Als een bezwaar van een burger niet binnen de wettelijke termijn wordt afgehandeld, hangt de gemeente een dwangsom boven het hoofd. Soms heeft de nieuwe werkwijze een vertragend effect. Als eerst geprobeerd wordt om het samen op te lossen en iemand besluit om toch de bezwaarprocedure door te zetten kan het zijn dat de termijn niet wordt gehaald. Als de gemeente dan een dwangsom krijgt, is dat wel erg zuur. Een oplossing is dat alle deelnemers vooraf afspreken dat ze eventuele vertraging accepteren.. Op dit moment wordt, vanwege de nieuwe wet, in Zwolle al zo gewerkt. Ingewikkelder is de noodzakelijke cultuurverandering. Het doorvoeren van een simpele vinding is namelijk uiterst ingewikkeld. Ambtenaren zijn gewend om namens de gemeente te praten. Voor ze contact zoeken met de burger willen ze weten wat de juridische positie is. Ze hebben de neiging om meer het standpunt van de gemeente uit te leggen dan te vragen wat de burger met het bezwaarschrift wil bereiken. Pruim: “Klassieke ambtenaren beginnen bij de inhoud en zoeken dan contact met de burger. Wij draaien het om. Eerst zoeken we contact met de burger. Daarna komt de inhoud.” Trieling spreekt over de LSD-techniek die ambtenaren onder knie moeten krijgen. “Luisteren, samenvatten en doorvragen.” Het is kortom niet makkelijk om iets wat heel gewoon lijkt, ook tot alledaagse praktijk te maken. Pieter Hilhorst Michiel Zonneveld
Verschenen in de serie Etalage voor Goede Ideeën, de Volkskrant 31 januari 2009 volksrant.nl/opinie |
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