Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Esta publicación cientíca en formato digital es continuidad de la revista impresa
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185Depósito legal pp
197402ZU34
ppi 201502ZU4645
Vol.39 N° 69
Julio
Diciembre
2021
Recibido el 03/03/2021 Aceptado el 22/05/2021
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
La re vis ta Cues tio nes Po lí ti cas, es una pu bli ca ción aus pi cia da por el Ins ti tu to
de Es tu dios Po lí ti cos y De re cho Pú bli co “Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas de la Uni ver si dad del Zu lia.
En tre sus ob je ti vos fi gu ran: con tri buir con el pro gre so cien tí fi co de las Cien cias
Hu ma nas y So cia les, a tra vés de la di vul ga ción de los re sul ta dos lo gra dos por sus in ves-
ti ga do res; es ti mu lar la in ves ti ga ción en es tas áreas del sa ber; y pro pi ciar la pre sen ta-
ción, dis cu sión y con fron ta ción de las ideas y avan ces cien tí fi cos con com pro mi so so cial.
Cues tio nes Po lí ti cas apa re ce dos ve ces al año y pu bli ca tra ba jos ori gi na les con
avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
co, los cua les son so me ti dos a la con si de ra ción de ár bi tros ca li fi ca dos.
ESTA PU BLI CA CIÓN APA RE CE RE SE ÑA DA, EN TRE OTROS ÍN DI CES, EN
:
Re vicyhLUZ, In ter na tio nal Po li ti cal Scien ce Abs tracts, Re vis ta In ter ame ri ca na de
Bi blio gra fía, en el Cen tro La ti no ame ri ca no para el De sa rrol lo (CLAD), en Bi blio-
gra fía So cio Eco nó mi ca de Ve ne zue la de RE DIN SE, In ter na tio nal Bi blio graphy of
Po li ti cal Scien ce, Re vencyt, His pa nic Ame ri can Pe rio di cals In dex/HAPI), Ul ri ch’s
Pe rio di cals Di rec tory, EBS CO. Se en cuen tra acre di ta da al Re gis tro de Pu bli ca cio-
nes Cien tí fi cas y Tec no ló gi cas Ve ne zo la nas del FO NA CIT, La tin dex.
Di rec to ra
L
OIRALITH
M. C
HIRINOS
P
ORTILLO
Co mi té Edi tor
Eduviges Morales Villalobos
Fabiola Tavares Duarte
Ma ría Eu ge nia Soto Hernández
Nila Leal González
Carmen Pérez Baralt
Co mi té Ase sor
Pedro Bracho Grand
J. M. Del ga do Ocan do
José Ce rra da
Ri car do Com bel las
An gel Lom bar di
Die ter Nohlen
Al fre do Ra mos Ji mé nez
Go ran Ther born
Frie drich Welsch
Asis ten tes Ad mi nis tra ti vos
Joan López Urdaneta y Nil da Ma rín
Re vis ta Cues tio nes Po lí ti cas. Av. Gua ji ra. Uni ver si dad del Zu lia. Nú cleo Hu ma nís ti co. Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas. Ins ti tu to de Es tu dios Po lí ti cos y De re cho Pú bli co
“Dr. Hum ber to J. La Ro che”. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
com ~ loi chi ri nos por til lo@gmail.com. Te le fax: 58- 0261- 4127018.
Vol. 39, Nº 69 (Julio - Diciembre) 2021, 386-394
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Signs of a Legal Entity of Public Law
under the Legislation of Ukraine
DOI: https://doi.org/10.46398/cuestpol.3969.24
V. F. Poddubnaya *
A. M. Yevkov **
Yu. M. Filonova ***
Abstract
The article examines the legal status of legal entities of public
law as participants in civil circulation. Both general and special
research methods were used, which were determined by the
purpose of the article, taking into account the object and subject
of the research. To study the above-mentioned civil law relations
in their interconnection and development, the dialectical method
was used. The comparative legal method was used to analyze
the world experience of legal regulation of the status of legal
entities of public law in foreign legislation and the doctrine of
law, in particular, in the legislation of the CIS countries. Results showed
that legal entities of public law are organizations; as legal entities; have
the characteristics of a legal entity: organizational unity, the presence of
separate property, acting in circulation on their own behalf, independent
civil liability. In addition to the general features of a legal entity, legal
entities of public law also have special features that characterize them as
participants in civil turnover. It was concluded that legal entities of public
law are a type of legal entity, are created in the administrative order by the
state and have targeted legal capacity.
Keywords: legal person under public law; organization; public interest;
legal capacity; legislation of Ukraine.
* Candidate of Legal Sciences (Ph.D), Associate Professor of the Department of Civil Law No. 2 of the
National Law University named after Yaroslav the Wise, Kharkiv, Ukraine. ORCID ID: https://orcid.
org/0000-0002-1139-9796. Email: global@ores.su
** Candidate of Legal Sciences (Ph.D), Associate Professor of the Department of Civil Law No. 2 of the
National Law University named after Yaroslav the Wise, Kharkiv, Ukraine. ORCID ID: https://orcid.
org/0000-0001-8777-5121. Email: global@prescopus.com
*** Postgrad student of the Department of Civil Law No. 2 of the National Law University named after
Yaroslav the Wise, Kharkiv, Ukraine. ORCID ID: https://orcid.org/0000-0002-1361-0145. Email:
info@prescopus.com
387
CUESTIONES POLÍTICAS
Vol. 39 Nº 69 (Julio - Diciembre 2021): 386-394
Signos de una entidad jurídica de derecho público en
virtud de la legislación de Ucrania
Resumen
El artículo examina la situación jurídica de las personas jurídicas
de derecho público como participantes en la vida civil. Se utilizaron
métodos de investigación, tanto generales como especiales, los cuales
fueron determinados por el propósito del artículo, tomando en cuenta el
objeto y tema de la investigación. Para estudiar las relaciones de derecho
civil antes mencionadas en su interconexión y desarrollo, se utilizó el
método dialéctico. El método jurídico comparado se utilizó para analizar
la experiencia mundial de regulación jurídica del estatus de las personas
jurídicas de derecho público en la legislación internacional y la doctrina
del derecho, en particular, en la legislación de los países de la CEI. Los
resultados mostraron que las personas jurídicas de derecho público se
identican por: ser personas jurídicas; tener las características de una
persona jurídica: unidad organizativa, presencia de propiedad separada,
actuar por cuenta propia, responsabilidad civil independiente. Además de
las características generales de una persona jurídica, las personas jurídicas
de derecho público también tienen características especiales como ser
participantes en la facturación civil. Se concluyó que las personas jurídicas
de derecho público son un tipo de persona jurídica, son creadas en el orden
administrativo por el Estado y tienen capacidad jurídica focalizada.
Palabras clave: persona jurídica de derecho público; organización;
interés público; capacidad jurídica; legislación de
Ucrania.
Introduction
Today, legal entities of public law are participants in civil circulation in
Ukraine. The construction of a “legal entity of public law” was enshrined
in the 2003 Civil Code of Ukraine (Haliantych, 2013). The introduction of
this construction into the legislation was because the legislator adopted
the traditions of the continental system of law in which legal entities are
divided into legal entities of private law and legal entities of public law. In
addition, the factors that inuenced the consolidation of this classication
of legal entities were the need to reform the public sector of the economy,
the establishment of legal equality of participants in property relations.
It was meant to determine the legal status of subjects of public law, in
particular, the state, local government bodies, state-owned enterprises. In
the science of civil law, there are no theoretical developments of the concept
388
V. F. Poddubnaya, A. M. Yevkov y Yu. M. Filonova
Signs of a Legal Entity of Public Law under the Legislation of Ukraine
of “legal entity of public law”. Most scholars oppose the consolidation of
this classication at the legislative level, in particular in Russia, Kazakhstan
it was refused to specify the division of legal entities into legal entities
of private law and legal entities of public law. Therefore, there are legal
problems of determining the legal capacity of legal entities under public law,
their types, property independence, and civil liability for their obligations.
The question of the criterion for legal entities dierentiation into private
and public remains debatable in the doctrine. All these problems require a
study of the legal status of legal entities of public law as participants in civil
legal relations.
The term “legal entity of public law” originated over 200 years in France
during the construction of an administrative state. Gradually, from the
end of the 19th century, this term began to be used in many European
countries, and already in 1990, it was xed in the Civil Code of Germany. In
the doctrine of German law, legal entities of public law are legal entities that
are established by virtue of law or administrative act as executors of tasks
of a public nature (Ennektserus, 1949). From this concept, two criteria
of dierentiation of legal entities of public law and private law can be
identied. The rst criterion: the procedure for the establishment of a legal
entity of public law (administrative), a legal entity of private law is created
in a regulatory-declarative order; the second criterion: the purpose of the
functioning of a legal entity of public law is the performance of public tasks,
whereas a legal entity of private law is created to satisfy private interests.
The legal status of legal entities under public law in Germany is
determined at the level of public law or the law of individual states (lands).
The types of legal entities under public law include the following: legal
entities that hold public power in a certain territory – a federation, federal
lands, communities; state universities; professional associations (chambers
of lawyers, chambers of commerce and industry); federal radio; public law
institutions: land radio stations, savings banks, public law funds. Legal
entities of public law carry out activities for serving the state and public
interests (Adarchenko, 2012).
In France, legal entities of public law include a public institution. The
legal status of the latter is characterized by the following features: 1) is
a legal entity; 2) is classied as a legal entity of public law; 3) manages
the public service. A public institution has property that belongs to it by
right of ownership, operates on the principle of specialization, i.e., it
has powers and competence only in the area that belongs to its type of
activity and is determined by law and regulations. Public institutions are
endowed with power and the ability to make decisions and carry out ocial
actions. In French doctrine, public institutions are classied according
to dierent criteria. Therefore, state, and non-state public institutions
are distinguished. The state ones include those that act with the aim of
389
CUESTIONES POLÍTICAS
Vol. 39 Nº 69 (Julio - Diciembre 2021): 386-394
realizing the state interest, non-state ones – those that operate in a certain
territory, in particular communal institutions. Depending on the nature of
their activities, the following types are distinguished: public educational
institutions (faculties, lyceums, and schools), social institutions (hospitals,
charitable institutions), nancial institutions (savings banks) (Vatel, 2012).
Thus, an analysis of the legislation of Western countries shows that
the concept of “legal entity of public law” is applied to a wide range of
dierent subjects, and there are no criteria for distinguishing between legal
entities of public law and legal entities of private law. Unlike Ukrainian
legislation, the state and other subjects of public law are recognized as
legal entities of public law. According to the Civil Code of Ukraine, the
state, the Autonomous Republic of Crimea, territorial communities are not
legal entities; they are called subjects of public law and are participants
in civil relations (Haliantych, 2013). The main features of a legal entity of
public law in Western countries include the following: 1) established by
subjects of public law; 2) are created in an administrative order; 3) act for
performing public tasks; 4) have the powers of authority and the ability to
issue regulations.
The concept of “legal entity of public law” is enshrined in the legislation
of the former Soviet republics, in particular, in the civil codes of Georgia,
Azerbaijan, Moldova, and the Baltic countries. So, for example, in accordance
with Art. 1509 of the Civil Code of Georgia, legal entities of public law
include: the state, local self-government, legal entities created by the state
on the basis of a legislative or administrative act, which are not created in
the organizational and legal forms dened by the Civil Code or the Law of
Georgia “On Entrepreneurs”, state institutions and foundations, non-state
organizations (political parties, religious associations) (Gvelesiani, 2011:
234).
A special law “On Legal Entities of Public Law” is in force in Georgia,
according to which a legal entity of public law can be created based on a law,
a decree of the President of the country, an administrative act of a public
administration body in cases expressly provided by law (Baade, 1995). A
legal entity has the right to carry out entrepreneurial activity, but only in
the form of an additional one. Legal entities of public law in Georgia can
act based on membership, that is, have a corporate structure. There is no
specic list of legal entities under public law in Georgian legislation. In
the Republic of Moldova, the Civil Code (hereinafter referred to as the “CC
RM”) establishes the division of legal entities into public and private, which
act in civil legal relations on an equal footing (Cazac, 2020).
The Civil Code of the Republic of Azerbaijan (hereinafter referred to
as the CC RA) provides for the dierentiation of legal entities into types,
among which there are legal entities that carry out activities of state or
public importance (public legal entities) (Dadashov, 2020). A legal entity
390
V. F. Poddubnaya, A. M. Yevkov y Yu. M. Filonova
Signs of a Legal Entity of Public Law under the Legislation of Ukraine
of public law can be created by the state, by a municipality body, acquire
legal capacity from the moment of state registration, which has a targeted
character, acts on the basis of the charter, bankruptcy proceedings cannot
be applied to these legal entities. The property of a legal entity of public
law can be formed by contributing to the statutory fund, which is created
at the expense of the property transferred by the founders, at the expense
of funds allocated from the state and local budgets, donations, grants
and other sources (Vandenbergh, 2005). The state and municipalities in
Azerbaijan are legal entities, but do not belong to legal entities of public law
(Mamedov, 2011).
Thus, the general features of legal entities of public law under the
legislation of the considered CIS countries are as follows: 1) are created
in the administrative order by the state or local government; 2) have a
targeted legal capacity – the implementation of state or public interests. In
modern law, there is no consensus among scholars about the eectiveness
and usefulness of the structure of a legal entity of public law. There are both
supporters of consolidation of the “legal entity of public law” concept in
doctrine and legislation, and opponents.
In the doctrine of law, there are several approaches to determining the
legal nature of a legal entity. So, for example, Bobkova and Ryabchenko
(2015), considers the combination of administrative and economic
functions in the activities of a given legal entity, the presence of special
legal capacity, the impossibility of realizing their public interest with an
exclusively commercial nature of activity as the main elements of the legal
capacity of legal entities of public law (Wilson, 2002). In the legal literature,
a denition of a legal entity of public law is given, which is understood as
an organization that is created as a legal entity by the state through the
adoption of a public law act, has legal capacity, is endowed with public
law powers and property (Vandenbergh, 2005). The special features of a
legal entity of public law include the public nature of goals, the presence
of power, and the special nature of membership (Tarasov, 2010). All the
characteristics of a legal entity are inherent in legal entities of public law:
organizational unity, property isolation, civil liability, acting in circulation
on its own behalf.
In the science of civil law, organizational unity is understood as a certain
hierarchy, subordination of governing bodies (individual and collegial),
which make up its structure and in a clear regulation of relations between
its participants (Puniyani, 2020). Legal entities of public law have their
own structure of bodies that exercise the dispositive capacity (legal capacity
to act) of these entities. They carry out their activities based on constituent
documents, which are usually adopted by the founder of a legal entity of
public law – a subject of public law (Vandenbergh, 2005). So, for example,
in accordance with Part 1 of Art. 4 of the Law “On Central Executive Bodies”
391
CUESTIONES POLÍTICAS
Vol. 39 Nº 69 (Julio - Diciembre 2021): 386-394
dated March 17, 2011 No. 3166-VI, ministries and other central executive
bodies are legal entities of public law (Hood and James, 1997; 188). One
of the central executive bodies with a special status is the State Property
Fund of Ukraine. The legal status of the State Property Fund of Ukraine is
xed at the level of the special Law of Ukraine “On the State Property Fund
of Ukraine” dated 09.12.2011 No. 4107-VI (Maksymenko and Melikhova,
2017: 64).
The State Property Fund of Ukraine is a legal entity of public law
that implements state policy in the eld of privatization, lease, use and
alienation of state property, management of state property, including the
corporate rights of the state regarding state property that belong to the
sphere of its management, as well as in the eld of public administration
of property appraisal, property rights and professional appraisal activities.
Financing, material and technical support of the State Property Fund of
Ukraine is carried out at the expense of the State Budget of Ukraine. The
State Property Fund of Ukraine issues orders that are binding on central
executive bodies, institutions, enterprises, organizations of all forms of
ownership and citizens.
Results and Discussion
The presence a legal entity’s separate property means that this property
is separate from the property of the owners who created this organization,
from the state, from other subjects of civil law (Puniyani, 2020). As a rule,
legal entities of public law are not the owners of the property they have.
So, in accordance with Art. Art. 167-169 of the Civil Code of Ukraine, legal
entities established on the state or communal form of ownership are legal
entities of public law (Haliantych, 2013, 244). Legal entities of public law
have their property on limited property rights: the right of operational
management, the right of full economic management, which are enshrined
at the level of the Economic Code of Ukraine. Today we need to look for an
eective alternative to limited property rights, since with the transition of
the domestic legal order from outdated structures of unitary enterprises
and institutions that do not own their property to normal market relations
(the structure of a legal entity – the owner), limitation of the liability of
autonomous and budgetary institutions as subjects of civil turnover, as well
as the possibility of the founder’s interference in the transactions of his own
independent legal entity should be gradually eliminated (Ulbashev, 2019).
One of the signs of a legal entity is its ability to take part in civil legal
relations, which is expressed in the ability to have, exercise property and
non-property rights and perform duties. Legal entities of public law are
participants in civil relations. Legal entities of public law in civil relations
392
V. F. Poddubnaya, A. M. Yevkov y Yu. M. Filonova
Signs of a Legal Entity of Public Law under the Legislation of Ukraine
are subject to the provisions of the Civil Code of Ukraine, unless otherwise
provided by law (Haliantych, 2013).
The sign of independent property liability is important, since the
creation of legal entities has long pursued the goal of maximum elimination
of founders (participants, shareholders) from liability based on the results
of the use of their invested capital. In accordance with Art. Ninety-six of
the Civil Code of Ukraine, a legal entity is independently responsible for its
obligations (Haliantych, 2013: 43). A legal entity is liable for its obligations
with all of its property. A participant (founder) of a legal entity is not liable
for the obligations of its participant (founder), except for cases established
by the constituent documents and the law. The liability of legal entities
under public law has certain specic features. Therefore, in the Civil Code
of Ukraine (Art. 167), among the types of legal entities of public law, state
enterprises are called (Haliantych, 2013).
Can all state-owned enterprises act as legal entities of public law? In
the opinion of most scientists, state and utility companies can be classied
as legal entities of private law, since their activities are not related to the
functions of state administration and local self-government but are aimed
at a more traditional civil law goal – making a prot, thus most of the state
enterprises seek to satisfy private and not public interest. Signs of public
interest in the doctrine of law are: 1) compliance with the needs, goals of
the whole society and the state, protection by specialized entities (state,
public associations); 2) legality, public interest is enshrined in legislation
and complies with it; 3) the inadmissibility of restricting public interest,
but at the same time, public interest may restrict private one. Therefore,
the classication of these entities as legal entities of public law may be
based because these participants in civil legal relations depend on their
founder, which is the state or local self-government, and the property of
these enterprises is state or communal property.
Conclusions
An analysis of the experience of legal regulation of legal entities of
public law in Western countries and the CIS countries shows that legal
entities of public law have common characteristics of a legal entity, such
as organizational unity, the presence of separate property, independent
civil liability, acting in circulation on its own behalf. In addition, these
entities also have special features that characterize them as legal entities
of public law: rst, they are created by subjects of public law (state, local
self-government); secondly, they are created in an administrative order;
thirdly, the activities of legal entities of public law are aimed at satisfying
the state (public) interest; fourthly, legal entities of public law are not the
393
CUESTIONES POLÍTICAS
Vol. 39 Nº 69 (Julio - Diciembre 2021): 386-394
owners of the property, the property belongs to the said entities on limited
property rights (the right of operational management, the right of full
economic management); fthly, subsidiary responsibility for the actions
of a legal entity of public law is borne by the subject of public law, which
created the specied entity. Thus, on the basis of the above, it is possible to
formulate the concept of a legal entity of public law, which is understood
as an organization that is created by a subject of public law, acts on the
basis of an administrative act, has legal capacity, which is determined by
certain public law purposes, has public law powers, has property, which has
a targeted nature for the implementation of these powers.
Bibliographic References
ADARCHENKO, O. E. 2012. Legal Entities of Public Law: Their Place in
Administrative Law. Administrative and municipal law. Vol. 12, pp. 44-
47.
BAADE, Hans W. 1995. «The Operation of Foreign Public Law» In: Tex. Int’l
LJ, p. 429.
BOBKOVA, E. YU; RYABCHENKO, O. N. 2015. Reection of the problems of
legal regulation of intellectual property for objects created in educational
institutions in modern legal literature (on the materials of the national
bibliographic database of scientic citation). In the World of Scientic
Discoveries / V Mire Nauchnykh Otkrytiy, 68 .
CAZAC, Octavian. 2020. Introduction of trusts into the Civil Code of the
Republic of Moldova: The Decisive Role of the DCFR. Available at SSRN
3811514.
ENNEKTSERUS, Louis. 1949. Kurs germanskogo grazhdanskogo prava (The
course of German civil law). Translated from German. Izdatel’stvo.
Moscow, Russia.
DADASHOV, Emin Teyyub. 2020. Norms Regulating Real Estate Issues
In The Civil Code Of The Azerbaijan Ssr Dated September 11,
1964. In: Теоретические Аспекты Юриспруденции И Вопросы
Правоприменения, pp. 188-192.
GVELESIANI, Irina. 2011. «Terms Related to the “Trust” in Georgian, Russian
and English Languages (according to “The Civil Code of Georgia”,“The
Civil Code of Russian Federation” and “Montana Code”)» In: Bilingual
Scholarly Peer-Reviewed Journal Spekali.
394
V. F. Poddubnaya, A. M. Yevkov y Yu. M. Filonova
Signs of a Legal Entity of Public Law under the Legislation of Ukraine
HALIANTYCH, M. 2013. «The Value of the Civil Code of Ukraine of 2003 in the
Legal Regulation of Housing Relations» In: Private Law/Pryvatne Pravo.
Vol. 2.
HOOD, Christopher; JAMES, Oliver. 1997. «The central executive» In
Developments in British Politics 5, pp. 177-204. Palgrave. London, UK.
PUNIYANI, Riya. 2020. «Uniform Civil Code and Conicts of Personal Laws.»
Available at SSRN 3643457.
MAKSYMENKO, Iryna; MELIKHOVA, Tatyana. 2017. «Accounting and
analytical procurement of state nancial control and directions of its
implementation in Ukraine» In: Baltic Journal of Economic Studies. Vol.
3, No. 5, pp. 268-275.
MAMEDOV, Z. A. 2011. “Topical problems of Azerbaijan notary service” In:
Law and Politics. Vol. 9, pp. 1446-1453.
TARASOV, O. I. 2010. On the Distinction of Private Law and Public Law
Relations with the Participation of Legal Entities of Public Law. Vestnik
Saint Petersburg UL, 76.
ULBASHEV, A. 2019. “A Citizen in Civil Law (a Historic and Private Law
Essay” In: Istoriya. Vol. 10, No. 6, p. 80.
VANDENBERGH, Michael P. 2005. «The private life of public law» In: Colum.
L. Rev. Pp. 105, 2029.
VATEL, A. Y. 2012. “Administrative and aesthetic standards in the system of
civil service in foreign countries” In: Police activity. Vol. 2, pp. 18-26.
WILSON, E. 2002. Est’zakon, est’i svoy zakony: Legal and Moral Entitlements
to the Fish Resources of Nyski Bay, Norht-Eastern Sakhalin. People and
the land: Pathways to reform in post-Soviet Siberia, 149-168.
www.luz.edu.ve
www.serbi.luz.edu.ve
www.produccioncienticaluz.org
Esta revista fue editada en formato digital y publicada
en julio de 2021, por el Fondo Editorial Serbiluz,
Universidad del Zulia. Maracaibo-Venezuela
Vol.39 Nº 69
