Верховний Суд у складі колегії суддів Касаційного адміністративного судуу Постанові від 01 травня 2025 року по справі №380/5886/22 щодо визнання протиправним і скасування рішення про затвердження містобудівних умов та обмежень для проектування об’єкта будівництва, прийшов до наступних висновків:
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Вищенаведені обставини засвідчують, що чинні станом на момент виникнення спірних у цій справі правовідносин план зонування та детальний план населеного пункту не відповідали положенням Генерального плану міста Львова від 2010 року та йому суперечили, а після встановлення у 2019 році у проєкті землеустрою цільового призначення запланованої до забудови земельної ділянки жодних змін у містобудівну документацію на місцевому рівні не вносилось.
Ці ж обставини підтверджують, що станом на момент затвердження землевпорядної документації щодо охопленої спірними МУО земельної ділянки та встановлення її цільового призначення (11 березня 2019 року) чинним був Генеральний план міста Львова, який відносив заплановану до забудови третьою особою земельну ділянку до території малоповерхової житлової забудови (2-4 поверхи), садибної житлової забудови (1-3 поверхи) та санітарно – захисних зелених насаджень, і який у подальшому та станом на дату надання ТОВ НВКП «Термінал-ЛТД» оспорених у цій справі МУО (10 вересня 2021 року) жодних змін не зазнавав.
За наведеного, Верховний Суд визнає помилковою позицію судів попередніх інстанцій про пріоритетність врахування у спірних правовідносинах саме цільового призначення земельної ділянки, яке не обмежувало поверховість об`єкта будівництва, а не положень Генерального плану міста Львова.
категорія земель та вид цільового призначення земельної ділянки визначаються в межах відповідного виду функціонального призначення території, передбаченого затвердженим комплексним планом просторового розвитку території територіальної громади або генеральним планом населеного пункту.
зміна цільового призначення земельної ділянки допускається виключно за умови дотримання правил співвідношення між новим видом цільового призначення земельної ділянки та видом функціонального призначення території, визначеного відповідною містобудівною документацією на місцевому рівні, крім випадків, визначених частиною третьою статті 20 Земельного кодексу України (таких випадків у спірних правовідносинах не настало);
У постанові Верховного Суду від 19 квітня 2021 року у справі № 640/11650/20, на яку міститься покликання у касаційній скарзі, сформовано правову позицію про те, що режим забудови територій визначається в Генеральних планах населених пунктів, зокрема, у планах зонування та детальних планах територій, які є основними видами містобудівної документації на місцевому рівні. На підставі вказаних містобудівних документів визначається цільове призначення земельної ділянки в межах якого може здійснюватися забудова земельної ділянки.
Отже цільове призначення земельної ділянки площею 0,2893 га (кадастровий номер 4610136800:01:009:0058) повинно було відповідати чинному на момент його встановлення Генеральному плану міста Львова, змін до якого у подальшому не вносилось.
Враховуючи відсутність змін у правовому регулюванні спірних відносин, забудова такої ділянки повинена була узгоджуватись саме з генеральним планом населеного пункту як основною містобудівною документацією на місцевому рівні, оскільки наявні станом на дату надання оскаржених МУО план зонування та детальний план території йому суперечили.
При цьому, якщо виходити з вищевказаних вимог Генерального плану міста Львова у співвідношенні з визначеним у землевпорядній документації цільовим призначенням земельної ділянки, щодо якої у спірних відносинах надані МУО, то на такій ділянці можливе будівництво та обслуговування багатоквартирного житлового будинку і супутніх будівель, висотність яких не перевищує чотирьох поверхів, а не будівництво об’єктів, висотою від п’яти до восьми поверхів, намір зведення яких на вказаній земельній ділянці у спірних відносинах заявлений ТОВ НВКП «Термінал-ЛТД».
З огляду на установлені судовим розглядом цієї справи обставини, визначену нормами матеріального праву регламентацію спірних правовідносин та висновки Верховного Суду щодо їх застосування, колегія суддів констатує, що заявлений ТОВ НВКП «Термінал-ЛТД» намір забудови вищевказаної земельної ділянки не відповідав вимогам містобудівної документації на місцевому рівні – генеральному плану населеного пункту, у зв’язку з чим виконавчий комітет Львівської міської ради не мав юридичних та фактичних підстав для надання вказаному Товариству містобудівних умов та обмежень для проєктування саме того будівництва, яке запланував замовник.
Надання третій особі вихідних даних для проєктування запланованого замовником будівництва у вигляді оскаржених у цій справі містобудівних умов та обмежень, які не відповідали Генеральному плану міста Львова, призвело до порушення прав позивача у сфері містобудування, а отже зумовлює наявність достатніх та самостійних підстав для задоволення поданого у цій справі позову.
Такий висновок відповідає правовій позиції, викладеній у постанові Верховного Суду від 19 січня 2023 року у справі № 640/9995/20, на яку покликається скаржник в обґрунтуванні підстав касаційного оскарження ухвалених у цій справі судових рішень, відповідно до якої здійснення забудови, наміри якої суперечать вимогам містобудівної документації (Генерального плану населеного пункту, Детального плану території), нівелює мету планування та забезпечення сталого розвитку населеного пункту, а отже, порушує суспільні інтереси, які виражаються у забезпеченні дотримання правил благоустрою населеного пункту, спрямованих на створення умов, сприятливих для життєдіяльності людини; містобудівні умови та обмеження, які не відповідають Генеральному плану населеного пункту та іншій містобудівній документації на місцевому рівні не можуть вважатися такими, що враховують громадські та приватні інтереси при плануванні та забудові територій,
Аналогічний висновок щодо застосування норм права сформульований, зокрема, й у постановах Верховного Суду від 20 травня 2019 року у справі № 826/15338/18 та від 04 вересня 2019 року у справі № 826/13852/17.
Anyone planning to build a private house—whether a residential, garden, or summer house – inevitably faces the question: what documents are required to start construction and ensure it is carried out legally?
If the total area of the house you plan to build does not exceed 500 square meters (approximately 5,382 square feet) and it will be no taller than two stories plus an attic, you can legally obtain the necessary documentation for construction through either a Building Passport or a Development Intention Scheme.
Both of these documents grant you the right to submit a notice of commencement of construction works, which in turn gives you the legal right to build.
But what is the difference between a Building Passport and a Development Intention Scheme? What are the advantages and disadvantages of each? And which one is more suitable in your particular case?
Below, I will focus on the Development Intention Scheme (note: to avoid confusion between the scheme of intentions required as one of the supporting documents for obtaining a building passport, and the Development Intention Scheme as a standalone document discussed in this article, I will capitalize the term “Development Intention Scheme” throughout this text). I will explain its benefits and drawbacks and compare it to the Building Passport so that you can make an informed decision about which document is best for your particular situation.
Development Intention Scheme for a Land Plot
⭕️Since July 12, 2022, it has been possible to carry out construction without a Building Passport – on the basis of a Development Intention Scheme for the land plot
Construction of individual (detached) residential houses, garden and summer houses not exceeding two stories (excluding the attic) and with an area of up to 500 square meters (approximately 5,382 square feet), as well as auxiliary buildings and structures, garages, landscaping and greening elements on the land plot, may be carried out by the owner without obtaining a Building Passport, provided this construction is in accordance with local urban planning documentation. If such documentation is not approved, construction must comply with the designated land use and restrictions established by the Law of Ukraine “On the Protection of Cultural Heritage.”
In this case, the owner must contract a certified architect or design engineer (who holds a valid qualification certificate). Based on this agreement, the architect or engineer is responsible for preparing and/or uploading the Development Intention Scheme to the Unified State Electronic System in the Field of Construction. The scheme must be digitally signed with a qualified electronic signature and include:
the layout of buildings and structures on the land plot,
façades and floor plans of buildings indicating dimensions,
a list of engineering systems to be used, including autonomous ones, etc.
The scheme must fully comply with the applicable legislation, construction codes, and building regulations.
When submitting the notice of commencement of construction works, the owner must indicate the registration number of the Development Intention Scheme in the Unified State Electronic System in the Field of Construction (USEDCS).
Procedure for Preparing a Development Intention Scheme
There is no officially approved legislative procedure for preparing a Development Intention Scheme for a land plot. In practice, all relations between the owner and the architect are governed by the contract between the two parties.
Should you include buildings and structures on the Development Intention Scheme that you might build later, or perhaps never build at all?
📌 I strongly recommend including all buildings and structures you plan or may potentially build in the future on the Development Intention Scheme. It is not a violation of current legislation to construct only a part of the structures indicated in the scheme. However, if you decide to add new structures after the scheme has already been registered, you will need to obtain a new Development Intention Scheme, since current legislation does not provide for making amendments to an existing scheme.
Regarding Distances to the Boundaries of Adjacent Land Plots and Existing Structures on Them
The responsibility for the accuracy of the distances to the boundaries and to neighboring buildings and structures lies with the architect. However, the owner should carefully review all documents prepared by the architect prior to registering the Development Intention Scheme to ensure that the indicated distances are accurate. It is also crucial to verify that minimum permissible distances have not been violated, as this may later lead to the cancellation of the Development Intention Scheme or the construction permit, or even to conflicts with neighbors.
📌 The fact that an adjacent plot is currently vacant does not mean that no construction is planned on it, or that you can simply place your building 2–3 meters from the boundary. In many cases, neighbors may have already obtained Building Passports, urban planning conditions and restrictions (UPCR), or registered Development Intention Schemes that allow them to build, for example, 3 meters from your boundary. This can directly affect how far you must set your structures back to comply with legal fire safety distance regulations. Unfortunately, verifying this information in advance may be extremely difficult – both for you and for your architect.
List of Documents Required for Preparing a Development Intention Scheme
List of Documents Required for Preparing a Development Intention Scheme
There is no exhaustive list of required documents established by law. However, without the documents listed below, the architect will not be able to prepare and register the Development Intention Scheme:
Information about the land plot, with ownership rights registered in the State Register of Property Rights to Real Estate (SRPRRE). If your ownership rights have not yet been registered in the SRPRRE (for example, if you hold an old state act or a purchase agreement dated before 2004), you must first update the ownership data in the register.
Cadastral number of the land plot — your plot must have a valid cadastral number assigned.
Land use purpose code. The State Land Cadastre must contain not only the textual description of the designated land use but also the numerical land use code (for example, 02.01 — for construction and maintenance of a residential house and auxiliary buildings). Without this numerical code, registration of the Development Intention Scheme in the Unified State Electronic System in the Field of Construction (USEDCS) will not be possible.
All other documents, including floor plans and building building elevations, may be prepared, ordered, or obtained by the architect, depending on your mutual agreement.тектор може виготовити, замовити або отримати сам (в залежності від вашої з ним домовленості).
Timeframe for Preparing and Registering a Development Intention Scheme
The timeframe for preparing the Development Intention Scheme and registering it in the Unified State Electronic System in the Field of Construction (USEDCS) is regulated by the agreement between you and the architect. There are no minimum or maximum deadlines established by law. In practice, depending on the completeness of the documents provided by the client, preparation and registration may take from 1 day to 1–2 weeks.
Paid or Free of Charge?
Since the Development Intention Scheme is prepared under a private agreement, the fee is determined by the service provider. Typically, the preparation and registration of the scheme is carried out on a paid basis, starting from several thousand hryvnias.
Development Intention Scheme and the USEDCS
The Development Intention Scheme is created and registered exclusively in electronic form within the USEDCS. As a result, each scheme is assigned a USEDCS registration number (format: NB00:0000-0000-0000-0000), and a QR code is generated linking to the respective scheme on the official portal: e-construction.gov.ua.
The client may be provided with an Extract from the USEDCS.
⭕️ Building Passport or Development Intention Scheme?
Advantages and Disadvantages of Each
Let me outline the pros and cons of both options based on my professional experience and 15 years of practice in preparing these documents.
✅ Advantages of the Building Passport:
Amendments can be made to a building passport if needed.
Registration of the notice of commencement of construction works can be processed automatically.
The Building Passport is issued by the local urban planning and architecture authority, which usually possesses complete data on red lines, planning restrictions on the land plot, and existing Building Passports, Development Intention Schemes, and UPCRs (Urban Planning Conditions and Restrictions) issued for neighboring plots. This reduces the likelihood of future issues.
✅ Advantages of the Development Intention Scheme:
Can be issued even in the absence of approved urban planning documentation at the local level.
Can be prepared and registered quickly (often much faster than a building passport).
The architect takes on the entire burden of collecting supporting documents, analyzing regulatory constraints, and preparing technical drawings.
❌ Disadvantages of the Building Passport:
Cannot be issued if there is no approved local urban planning documentation.
Sometimes additional documents not required by law are requested, leading to delays and additional expenses.
The processing time is often longer than for a Development Intention Scheme and may be significantly delayed by local authorities.
❌ Disadvantages of the Development Intention Scheme:
No amendments are allowed — any change requires preparing a new scheme.
Automatic registration of the notice of commencement of works is currently not supported when using a Development Intention Scheme.
Some local building control authorities (DABC) deliberately refuse to register such notices if based on a Development Intention Scheme rather than a Building Passport.
The scheme is always prepared on a paid basis.
It cannot be registered unless the land rights are registered in the State Register of Property Rights, and unless the land use code is entered in numeric format in the State Land Cadastre.
You can discuss the current regulations and get advice on specific cases related to the preparation of a Development Intention Scheme or Building Passport in the group Urban Planning in Ukraine.
Anyone planning to build a private house—whether a homestead, garden, or summer house—inevitably asks: what is required to start construction and ensure everything is done legally?
If the total area of your planned house does not exceed 500 square meters, and the building will not be taller than two stories and an attic, then you may legally proceed with the project by obtaining a Building Passport (будівельний паспорт) or a Development Intent Scheme (схема намірів забудови).
Both of these documents entitle you to submit a notice of commencement of construction works, granting you the legal right to build.
A Building Passport is a document that defines a set of urban planning and architectural requirements for the placement and construction of an individual (homestead) residential house, garden or summer house with a height of no more than two stories (excluding the attic) and a total area of up to 500 square meters. It also applies to the construction of auxiliary structures such as utility buildings, garages, engineering protection elements, landscaping, and greening within the land plot.
A Building Passport can be issued for land plots located in cities or villages, as well as for those in garden communities or dacha cooperatives — the rules for obtaining a building passport are unified across all these categories.
Before that, building passports also existed, but their issuance required a design or sketches signed by an architect, and the passport itself had to be approved not only by the local department of urban planning and architecture but also by sanitary-epidemiological services, fire safety authorities, and, in some cases, other agencies.
It is important to note that both “old” and “new” building passports are valid indefinitely — they do not have an expiration date.
Previously, building passports were issued only for houses with a total area of up to 300 square meters. However, starting from January 1, 2019, amendments to Article 27 of the Law of Ukraine “On Regulation of Urban Planning Activities” came into effect, increasing the maximum permitted area of buildings allowed under a building passport from 300 to 500 square meters. Despite this legislative change, for a significant period of time, some departments of urban planning and architecture continued issuing passports with the outdated 300 m² restriction, until corresponding updates were made to the Procedure for Issuing Building Passports.
A Building Passport can be obtained offline through an Administrative Services Center (CNAP) — either by submitting documents in person or by mail — or online via the Diia Portal.
The passport includes both textual and graphical materials, the most important of which is the development scheme for the land plot. ⚠️ Note: In this article, the term “development scheme” refers to the document that is part of the building passport application package. It should not be confused with the “Development Intent Scheme” (a standalone alternative planning document discussed in the next article). To avoid confusion, I will refer to this one as the “site development scheme” going forward.
The site development scheme must show all the buildings and structures intended to be constructed on the land plot. Any construction of structures not included in the building passport (and therefore not mentioned in the notification to the State Architectural and Construction Control Authority) will be considered unauthorized, meaning carried out without the required legal documentation.
In addition to showing the layout of the planned buildings and structures, the site development scheme must also include:
distances to the boundaries of adjacent land plots and nearby structures;
locations of engineering networks and facilities;
building facades and floor plans with overall dimensions;
a list of utility systems (including autonomous ones) to be used;
red lines and development control lines;
vehicle access routes to the buildings and structures;
As outlined in the regulations, the scheme must contain a substantial amount of detailed information — much of which the applicant may find difficult or even practically impossible to collect independently. While most of this information is considered open data and should be freely available to the public, in reality, this has not always been the case.
Even prior to the full-scale invasion, not all required data was made public. After February 22, 2022, many public resources were either restricted or taken offline for security reasons.
As a result, in order to obtain information such as red lines, the applicant must often submit formal requests to local departments of urban planning and architecture.
Additional challenges may arise when trying to determine the distances to engineering networks, especially underground utilities, since their locations are not always visibly marked on-site. Although current legislation does not require applicants to commission topographic and geodetic surveys with utility overlays, I strongly recommend that those planning construction in large cities consider ordering such a survey, particularly with utility lines shown.
For example, in Kyiv, obtaining a building passport will typically require a topographic and geodetic survey that includes both utility lines and land parcel boundaries.
📌 Until February 4, 2022, applicants were not required to submit a site development scheme — it was sufficient to provide a simple statement of development intent, which did not include critical information such as red lines or development control lines.
In my opinion, the responsibility for providing such technical data — especially when it is not publicly accessible — should still lie with the local departments of urban planning and architecture. However, the legislator has decided otherwise: the applicant is now responsible for including this information in the submitted scheme.
Should you include structures that you may build later — or might not build at all?
I recommend including all structures you are considering — even those you only might build in the future — in the initial site development scheme.
Constructing only some of the structures shown in the scheme does not violate current legislation. However, if you later decide to add any new buildings or structures that were not included in the original scheme, you will need to formally amend the building passport — and that process is almost identical to applying for a new one.
On Distances to Adjacent Property Boundaries and Nearby Structures
📌 It is essential to understand that this requirement applies not only to existing structures on neighboring plots (or those already under construction), but also to those that are only planned — provided that your neighbors have obtained the legally required documentation, such as a building passport, development intent scheme, or other relevant construction permits.
Information about planned buildings and structures on adjacent plots is available from local departments of urban planning and architecture, which are responsible for issuing or approving building passports or Urban Planning Conditions and Restrictions (UPCR) for land development.
Since autumn 2020, such data has gradually begun to appear on the national online platform: e-construction.gov.ua
The fact that an adjacent land plot is currently vacant does not mean that no construction is planned on it — and it certainly does not give you the right to build as close as 1 or even 5 meters from the boundary without consequences. There are many situations where neighboring landowners have already received building passports, Urban Planning Conditions and Restrictions (UPCR), or have registered Development Intent Schemes that allow construction just 1 meter away from your property line.
Therefore, in most cases, to avoid violating legal requirements — especially those concerning fire safety setbacks — you will need to maintain a distance of 7 meters or more from the boundary when placing your building.
This is one of the key reasons why obtaining all the required planning and permitting documentation before starting construction is essential.
Application for the issuance of a building passport (or for amendments to an existing building passport);
Copy of a document confirming ownership or use rights to the land plot, or a superficies agreement, or a will, in cases where the real property right is not registered in the State Register of Property Rights to Real Estate;
Copy of a document confirming ownership of a real estate object located on the land plot, if the ownership right is not registered in the State Register of Property Rights to Real Estate (applicable in cases of reconstruction or major repairs);
Consent of co-owner(s) of the real estate object located on the land plot (in cases of reconstruction or major repairs), if the property is held in shared ownership;
Site development scheme (including location of buildings and structures on the land plot, distances to adjacent land plot boundaries and nearby structures, engineering networks and facilities, elevations and floor plans with dimensions, list of engineering systems including autonomous ones planned for use, etc.), using the template provided in Annex 2 to the Procedure;
Project documentation, if available;
Consent of co-owner(s) of the land plot for the proposed construction (in case of new development), if the land is held in shared ownership;
Information about the presence of cultural heritage protection zones or any use restrictions within the land plot boundaries in the case of new construction (if applicable).
Copies of documents submitted for the issuance of a building passport must be certified by the applicant (or their representative). There is no requirement for notarization of these copies.
Notarized consents are required only when co-owners are involved. These consents are typically prepared in free form, but the signatures of all involved parties must be notarized.
In most cases, when building under a building passport, a full construction project is not developed. Even if a project has been prepared (or purchased), I recommend submitting only design sketches (schematic drawings) to the urban planning and architectural authorities. Any demand for full project documentation for the purpose of issuing a building passport is unfounded and has no legal basis.
⭕️Despite the fact that the list of documents required to issue a building passport is exhaustive, urban planning and architectural authorities frequently demand additional documents, such as: extract from the settlement master plan or community development plan, topographic survey, charters of gardening or dacha cooperatives, extract from the State Land Cadastre, technical specifications, address assignment documents, and others. However, the Procedure for Issuing a Building Passportdoes not obligate the applicant to provide any of these documents.
Building Passport and the Unified State Electronic System in the Field of Construction (USEDCC)
Since autumn 2020, information on building passports for land plot development must be entered into the Unified State Electronic System in the Field of Construction (USEDCC).
As a result, each building passport is assigned a unique USEDCC registration number (format: BP00:0000-0000-0000-0000) and a QR code is generated, linking directly to the passport on the public e-construction.gov.ua portal.
❗️If there is no registration number, or if the data entered into the USEDCC is incomplete or contains errors, it becomes impossible to register a Notice of Commencement of Construction Works!
It is critically important to verify the accuracy of the information entered into the USEDCC. In my practice, I have encountered multiple cases where the data was incomplete or contained mistakes — which later resulted in the DIAM (formerly DABI) authority refusing to register the documents granting the legal right to begin construction.
Ukrainian law provides a limited and exhaustive list of grounds on which an authority may refuse to issue a building passport. According to Clause 2.4 of the Procedure, the package of documents for issuing or amending a building passport is returned by the authorized body of urban planning and architecture to the applicant in the following cases:
failure to submit a complete set of required documents;
inconsistency of the proposed land development plans with local urban planning documentation, construction norms, and regulations;
submission by the applicant of a written request in free form to withdraw their application for a building passport.
📌In practice, most refusals to issue a building passport are based on the absence of urban planning documentation (such as a master plan, detailed plan of territory [DPT], etc.) or non-compliance of the submitted documents (especially the design intentions) with the current urban planning legislation.
It is strongly recommended to check the possibility of obtaining a building passport and placing specific buildings or structures on a land plot before purchasing the land.
Timeframe for Issuance of a Building Passport
According to Clause 2.1 of the Procedure, a building passport must be issued free of charge by the authorized urban planning and architecture body within ten business days from the date of submission of the complete package of documents.
Right to Commence Construction Work
After obtaining a building passport, to gain the legal right to carry out construction, the applicant must submit a notice of commencement of construction work to the relevant body of state architectural and construction control (DIAM, formerly DABI), for projects being built based on a building passport.
✅ The notice can be submitted in paper form via the Administrative Services Center (CNAP) or by postal mail, but it is much faster and more convenient to submit it electronically via the Diia portal.
Currently, in most cases, automatic registration of the submitted notice is available (only if construction is based on a building passport, not a development intention scheme). This means you will typically receive the registration number for your notice of commencement within minutes.
For advice on specific cases or discussion of current norms regarding building passports or development intention schemes, you can join the Urban Planning in Ukraine community group.
