Havbruksanlegg

Overtredelsesgebyr i oppdrettsnæringen – regelverk uten styring

19 Sep 2013

Fiskeridepartementet sendte i forrige uke ut høringsnotat og forslag til ny tekst til reaksjonsforskriften for fiskeoppdrettsnæringen. Dette er siste byggestein i det nye regelverket for administrative sanksjoner for oppdrettsnæringen som […]

oppdrettsanlegg_shutterstock_95817832[1]Fiskeridepartementet sendte i forrige uke ut høringsnotat og forslag til ny tekst til reaksjonsforskriften for fiskeoppdrettsnæringen. Dette er siste byggestein i det nye regelverket for administrative sanksjoner for oppdrettsnæringen som etter planen skal tre i funksjon fra 1. januar 2014.

Regelverket er blant annet ment å gi veiledning til fiskeriforvaltningen ved utmåling av overtredelsesgebyr. Leser man regelverket oppdager man imidlertid at det ikke er slik.  Det gir knapt noen som helst veiledning for den som skal måle ut gebyrene.  Det er etter min mening både uheldig og uforsvarlig i en situasjon der fiskeriforvaltningen skal bruke regelverket som grunnlag for utmåling av gebyrer som kan bli meget høye.

Fiskaren hadde fredag 13. september en fyldig dekning av et element i dette regelverket; den øvre ramme for gebyrene.  Det foreslås at den øvre ramme øker med antallet konsesjoner og for Marine Harvest betyr dette at maksimalt gebyr er på ca. kr. 35.000.000,-. Det er et ekstremt høyt beløp for et overtredelsesgebyr som ilegges administrativt og uten at de ordinære politi- og myndigheter har behandlet saken.

I miljøsaker, som er sammenlignbart ,har vi etter det jeg kjenner til aldri sett bøter på over kr. 35.000.000,-, selv ikke ved alvorlige dødsulykker.  Statoil aksepterte før sommeren en bot på kr. 30.000.000,- etter en alvorlig gasslekkasje på Gullfaks C. Det var etter en situasjon som var svært farlig og kunne utviklet seg til en katastrofe med tap av mange menneskeliv. Det er illustrerende for hvor alvorlige regelbrudd som må foreligge for at man ellers benytter så strenge reaksjoner.

Samtidig vil maksimalt nivå på overtredelsesgebyrene være høye også for mindre oppdrettere. For de minste vil maksimalt gebyr være 15x folketrygdens grunnbeløp – det vil i dag si kr.1.275.000,-.  For overtredelsesgebyrer i den ordinære fiskerinæringen er maksimalt gebyrbeløp til sammenlikning kr. 100.000,-. Mener fiskerimyndighetene at det i slike saker bør reageres strengere må de sende saken til påtalemyndighetene og de dem vurdere bøteleggelse og eventuell straffesak.

Når det så gjelder utmålingen av overtredelsesgebyret har akvakulturloven etter endringene i sommer fått inn en formulering i loven §  30 som gir en rikholdig meny av argumenter som er relevante ved vurderingen av om overtredelsesgebyr skal gis, og måles ut. Listen er på i alt ni punkter og dekker inn de fleste saklige argumenter som kan tenkes brukt i forbindelse med en vurdering av om gebyr skal gis. Listen ser slik ut:

Ved avgjørelsen av om foretaket skal ilegges overtredelsesgebyr og ved utmålingen av gebyret kan det særlig legges vekt på:

a) overtredelsesgebyrets preventive virkning,

b) overtredelsens grovhet,

c) om foretaket ved internkontroll, retningslinjer, instruksjon, opplæring eller andre tiltak kunne ha forebygget overtredelsen,

d) om overtredelsen er begått for å fremme foretakets interesser,

e) om foretaket har hatt eller kunne oppnådd noen fordel ved overtredelsen,

f) foretakets økonomiske evne,

g) om det foreligger gjentakelse,

h) hvilke tiltak som er iverksatt for å forebygge eller avbøte virkningene av overtredelsen og

i) om overtredelsen innebærer fare for eller har ført til alvorlig eller uopprettelig miljøskade.

Som man ser av innledningsordene er listen ikke uttømmende.  I en konkret sak kan fiskeriforvaltningen legge vekt på andre momenter som de mener bør tillegges betydning.

Det verken regelverket eller veiledningen sier noe som helst om er imidlertid utmålingsnivået. Det skrives ikke ett ord for å gi forvaltningen en pekepinn om hva de overordnede myndigheter vil anse som et rimelig reaksjonsnivå i konkrete saker. Det er særlig uheldig når menyen av akseptable argumenter blir så stor som dette.

For å sette det på spissen. Ved en og samme rømming fra et av Marine Harvest sine anlegg vil den forvaltningstjenestemann som skal behandle saken kunne bruke dette regelverket til å utmåle et overtredelsesgebyr på et hvilket som helst nivå mellom kr. 0,- og kr. 35.000.000,-. Det er bare et spørsmål om hvilket av argumentene i menyen som saksbehandleren velger å legge vekt på.

Dette er helt uakseptabelt at tre grunner. Det gir ingen styring med reaksjonsnivået. Det gir ingen veiledning til den underordnede forvaltning. Og det gir ingen forutsigbarhet for næringen og gebyrene får derfor heller ikke noen målrettet preventiv effekt. 

 Høringsfristen er satt til 1. desember 2013, slik at behandlingen av høringsuttalelsene vil finne sted etter at vi etter alt å dømme har fått en ny regjering. Det gir en svært god anledning for den nye regjeringen til å vise at de er opptatt av rettssikkerhet også for næringslivet. Det må gis rimelige rammer for overtredelsesgebyrene og regelverket må i tillegg gi klare signaler om hvilket reaksjonsnivå departementet forventer.

Om forfatteren

Halfdan Mellbye
Halfdan Mellbye Halfdan Mellbye har i 25 år arbeidet med ulike juridiske problemstillinger innenfor fiskeri- og havbruksnæringen. Han har blant annet arbeidet svært mye med næringsreguleringsspørmål og han har i tillegg særlig gode kunnskaper om de biologiske og miljømessige utfordringene for næringsutøverne. Han har i en årrekke vært faglig ansvarlig for faget Havbruksjus ved Universitetet i Bergen. Han har nylig utgitt boken "Rettslig regulering av norsk akvakultur" som er utgitt på Universitetsforlaget 2018. Halfdan har møterett for Høyesterett.

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