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Towards a real property cadastre in Croatia

V Cetl, M Roic & S Mastelic Ivic

To cite this article: V Cetl, M Roic & S Mastelic Ivic (2012) Towards a real property cadastre in
Croatia, Survey Review, 44:324, 17-22, DOI: 10.1179/1752270611Y.0000000007

To link to this article: https://doi.org/10.1179/1752270611Y.0000000007

Published online: 12 Nov 2013.

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Towards a real property cadastre in Croatia
V. Cetl*, M. Roic and S. Mastelic Ivic
The fall of the Iron Curtain and the change of social and economic order in the East European
countries, as in Croatia, have caused great alterations, especially in the perception of real
property ownership and real property transactions. To be able to support the growing real
property market it is necessary to reform the land administration system, because of the social
ownership concept that was in practice over 50 years on the former Yugoslavia territory. Having
recognised this challenge, Croatia invests enormous efforts and significant financial resources in
order to modernise the land registration system as quickly as possible, so as to guarantee
security of ownership and real property transactions. In this paper, an overview of the inherited
cadastral system and current activities towards a modern real property cadastre is given.
Keywords: Real property, Cadastre, Land administration

Introduction produced, maintained and distributed according to

The change of social and economic order in East Europe
has caused great alterations, especially in the perception
of real property ownership and real property transac-
tions [15]. The real property market has developed in the
last few years into a completely new economic branch of
great potential. Owing to the investment boost and the
expected development of real property market, the need
to have up-to-date register data is an imperative. Since
1st February 2009, citizens of all EU member states as
private individuals can buy real property in Croatia
under no special conditions and without any additional
administrative procedures. They just have to proof EU
citizenship for registration of real property. This will
make possible for the thousands of EU citizens who
have expressed an interest in buying property in Croatia
to finally do so. In this context, a reform of the land
cadastre and land registries, which make up the land
administration system, is one of the currently most
important projects in Croatia. Within this reform, one of
the activities is set-up of a real property cadastre.
Undoubtedly, the traditional cadastral system has to
be modernised, to fulfil its purpose and the needs of
society for spatial data, and to support sustainable
development. Its role today is multipurpose [17], and its
reform and modernisation in the upcoming period
should be in line with the future vision of cadastral
systems [7].
Cadastre as the large scale spatial data is the basis of
spatial data infrastructure [3]. This is illustrated by
various countries which have the cadastre as part of
their basic spatial data set. Coordinated management is
of special importance for cadastral data, since their
processing is significantly more expensive than of any
other type of data. For cadastral data to be able to
support E-government and E-commerce, they have to be
Faculty of Geodesy, University of Zagreb, Croatia
*Corresponding author, email vcetl@geof.hr
appropriate standards at a country level [4].
With assistance of international institutions, the
International Bank for Reconstruction and Develop-
ment, the European Union and a number of donor
countries, the Croatian cadastral system is currently in
transition from an obsolete ‘land cadastre’ to a modern
‘real property cadastre’. The biggest problem is that
cadastral parcels are not harmonised with the land
registry (land book) data. Furthermore, the situation in
the registers does not correspond to the actual situation
in the field. The original idea of land administration
system modernisation was a new cadastral survey of the
whole Croatian territory, set-up of a real property
cadastre and reform of the land registry. Unfortunately,
this idea was too ambitious and could not be accom-
plished. The chosen solution was an exclusive concept of
maintenance of the existing land cadastre and its gradual
adjustment to a real property cadastre.
Historical development of cadastre
Considering the structure and display of data, the
Croatian cadastre is categorised as a European parcel
cadastre which is accepted and implemented in most
European countries [8]. It is based on the conducted
survey and land classification for a territorial unit. The
basic feature of this cadastre is a display of shape and
location of each land parcel in cadastral maps, and other
documents include data on area, cultures, soil quality
and owner. Each land parcel is marked by a specific
indicator – the number of cadastral parcel. During the
nineteenth and twentieth centuries, many non-European
countries also accepted this type of cadastre. As in most
European countries, as well as Croatia, the primary goal
of the cadastre was classification and taxation of land,
and later it led to the set-up of land registries, the main
role of which is defining and regulating rights and legal
statuses on real property.
The first bigger cadastral survey was carried out in
1756 in Dalmatia by the order of the Venetian governor

ß 2012 Survey Review Ltd

Received 5 October 2011; accepted 13 October 2011
DOI 10.1179/1752270611Y.0000000007 Survey Review 2012 VOL 44 NO 324 17
Cetl et al. Towards a real property cadastre in Croatia
1 The fifth and sixth systems of Yugoslavian cadastre
Grimani. The State Archives in city of Zadar still keep
maps for 56 villages of that period, entitled ‘Grimani’s
maps’.
Owing to historical circumstances, Croatia has been
through different socio-political regimes and unions.
Accordingly, the cadastre developed in different areas in
various time periods and conditions. Considering the
existing cadastral maps, the Croatian territory can be
divided into the areas of:
N Austrian and Hungarian cadastre
N Yugoslavian cadastre
N Croatian cadastre.
Cadastral surveys in the eighteenth and nineteenth
centuries were graphic (geodetic planetable). After
First World War, numerical methods started to be
applied – orthogonal and polar, later photogrammetric
and recently the GPS RTK method.
Area of the Austrian and Hungarian cadastre
The first bigger and encompassing survey of the
Croatian part of Austro-Hungarian Empire was carried
out under Joseph II, starting in 1785 and ending in 1790.
In the records, it is known as the ‘Josephine cadastre’.
The survey included only arable land, and was com-
pleted in ‘impressive’ four years. Since technically the
survey was simplistic, immediately after the completion,
many faults were evident and the Josephine cadastre was
rejected. In 1806, a commission was formed, with the
task of finding solutions for a new survey and setting-up
a land cadastre. The commission’s recommendations
were accepted, and in 1817 an Emperor’s Patent was
issued (Grundsteuerpatent), which called for land survey
in all parts of the Empire, specification of cultures,
classification and draw-up of cadastral documentation.
Survey of the Croatian part under Austrian reign started
in 1818 and ended in 1839. It was based on a network of
trigonometric points, and drawn in a planar rectangular
system with no projection, and therefore two coordinate
systems were used with different starting points. Survey
of the Croatian part under Hungarian reign was done
18 Survey Review 2012 VOL 44 NO 324
between 1847 and 1877, also in two planar coordinate
systems. The basic scale of cadastral maps in the Austro-
Hungarian period was 1 : 2880, based on the length unit
‘Austrian fathom’ (1896 m56 feet).
Area of the Yugoslavian cadastre
At the end of First World War, the Kingdom of
Yugoslavia was formed. Cadastral surveys and the
cadastre existed only for those areas which had been
parts of Austro-Hungary, while Serbia, Montenegro and
Macedonia had no cadastre. For this reason immedi-
ately after First World War ended, cadastral surveys
started, of the Serbian territory first. The survey lasted
till 1923, and due to the unresolved issue of official
projection, it was drawn similarly as the graphic surveys
of Austro-Hungarian period. Only in 1924 the Kingdom
of Yugoslavia officially introduced the standard Gauss–
Krüger projection of meridian zones.
The Croatian territory was projected onto two
vertically laid cylinders in relation to ellipsoid, i.e. in
two coordinate systems, the fifth and the sixth (Fig. 1).
In these systems, the cadastral map was created for
~20% of the Croatian territory, including the survey of
city areas (~9%) and survey after land consolidation
(~11%). The basic scale of cadastral map was 1 : 1000.
In 1929, an Act on Land Cadastre was passed. This act
brought no novelties because it was mostly only a
translation of the Austro-Hungarian Grundsteuerpa-
tent, so the tax purpose remained primary. Develop-
ment of the cadastral survey technologies, especially
development of numerical methods in that period resulted
in a number of directives which regulated those proce-
dures, and some of them are still in use today.
After 1945, i.e. Second World War, and the introduc-
tion of radical changes in the social regime, the notion of
ownership and other property rights changed. The land
cadastre and land registry were not supported in that
period, but were continuously neglected, with the aim of
finally abandoning them once the private property is
abolished and everything becomes state-owned. This
resulted in non-maintenance of the cadastre till 1953,
when a Decree on Land Cadastre was issued. The reason
for issuing such a decree was lack of money in the state
coffers, and new sources of income were needed. Thanks
to this the cadastral service was reactivated, and a
revision of cadastral documentation started, which had
not been updated in those 10 years. However, the land
registry continued to be neglected. The cadastre got its
function, but as an institution that keeps data on users
which are necessary for taxation. This led to divergence
between the cadastral and the ownership data in land
registries, because in the period of Yugoslavia the land
registry was mainly not updated along the new cadastral
documentation. In the areas of complete survey of a
cadastral municipality the land registry was updated
only in 45% of cases, and in the areas of partial survey of
cadastral municipalities in only 25% of cases. This fact is
today very disadvantageous for efficient functioning of
the land archives, real property market and economic
development in general.
It is important to stress that the cadastral regulations
applied to the whole territory of former Yugoslavia.
Only after decentralisation of Yugoslavia the states
could make their own regulations. Therefore, the
Parliament of Socialist Republic of Croatia in 1974
issued an Act on Geodetic Survey and Land Cadastre,

2 a Cadastral municipalities (~3300) and b Regional Cadastral Offices
which with later addenda and changes was in force till
1999.
Area of the Croatian cadastre
After the break-up of former Yugoslavia and declara-
tion of independence in 1991, Croatia accepted the fifth
and sixth coordinate systems of Gauss–Krüger projec-
tion as the official state cartographic projection. For the
inherited geodetic systems of former states which
Croatia was part of, the title Croatian State Coor-
dinate System was used. The basic scale of cadastral
map from 1991 onwards has been 1 : 1, and it has mostly
been made digitally. In 2004, the Croatian Government
passed the Decree on establishing new official geodetic
datums and map projections of the Republic of Croatia
[11] that will be adopted by 2010 [1].
Digitalisation of the cadastral data started in the
1990s. At the beginning, all written cadastral data were
digitalised and a public web page set up [13]. The next
step was digitalisation of about 57 000 detail sheets of
cadastral maps which ended in 2008. The paper-based
cadastral maps were first transformed into a raster form
and then vectorised by the private geodetic firms or
cadastral offices. A dominant feature of the cadastre is
big fragmentation of cadastral parcels, of which there
are ~14 million, which is more than 3 parcels per
inhabitant.
The cadastre keeps technical records of land, while
ownership and other rights are stated in the land
registry. Cadastral records, which are created for the
area of a single cadastral municipality (Fig. 2a), consist
of the technical (cadastral map sheets, overall cadastral
map sheets and other documents) and the descriptive
(alphanumerical) part. Cadastral records are kept in 20
regional and 92 local cadastral offices (Fig. 2b).
Ownership and other rights are kept in the land
registry offices. This is the register in which data about
owners and holders of the real property rights are
attached to the cadastral parcels and other facts
important for legal transactions. When it is about
transfer of real property rights one legally becomes an
owner by registration in the land registry. Data in the
Cetl et al. Towards a real property cadastre in Croatia
land registry are systematised in land sheets which are
kept and maintained in 109 land registry offices of the
municipal courts under the Ministry of Justice. A piece
of land belongs to the area of a land register court, in
which there is an established general register for each
cadastral municipality.
Owing to the historical reasons, the data between
cadastre and land registry are mostly not harmonised
and does not match the actual situation on the ground.
Harmonisation of those two registers into one unique
land data base as integrated land registry and real
property cadastre is a primary goal of a current land
administration system reform.
Set-up of real property cadastre
In the course of historical development of the cadastre
big disparities occurred in the quality of data in different
areas. A dominant feature of the cadastral system is that
in its bigger part (70%), the land cadastral map is in
official use which is drawn by the nineteenth century
graphic survey method in more than one referent
coordinate systems. In order for the land cadastre to
serve its purpose, it must be continually updated with
the actual situation and renewed as necessary. Cadastral
maps have their own features and specifications. The
mentioned disparities are due to the historical develop-
ment, legal controls, technological changes, institutional
structure, economic aspects and the needs of different
users.
Legal framework
The first law to regulate the real property cadastre and
state survey in Croatia was passed in 2000 [10]. Till then
the Act of 1974 had been in force. The land cadastre was
a record with the main purpose of taxation on agri-
cultural and forestry income. When the cadastre-based
taxation on agricultural and forestry income stopped
(with the introduction of value added tax), the land
cadastre, as the basis of keeping land registries, needed
to be reformed. Since the tax purpose was dismissed,
the goal was to make the cadastre harmonised and
Survey Review 2012 VOL 44 NO 324 19
Cetl et al. Towards a real property cadastre in Croatia
connected with the land registry. Of course, the cadastre
has also other purposes (multifunctional cadastre), such
as support to space planning, land statistics, agrarian
activities (e.g. land consolidation), but the main goal of
reform was harmonised and efficient registration of real
property and rights on it, to achieve security in legal
transactions of real property.
Real property cadastre is defined as a register in which
data about location, shape, area, type of use and
buildings are kept for each cadastral parcel. Those data
are official data for description of parcels in the transfer
of real property rights, and they are official data for
establishment and maintenance of the land registry.
Location and shape of cadastral parcels and buildings
are presented in cadastral maps. Written cadastral data
are systematised in possessory registration sheets, in
which there are data about number, name, type of use,
buildings and area for each cadastral parcel. Data about
owners in the possessory registration sheet are the land
registry data.
Since in former Yugoslavia, due to socialist regime,
the cadastre and land registry were continuously
neglected, the intention of the 2000 Act was to make a
new cadastral survey of all cadastral parcels, ~14 million
on the whole state territory, and create a real property
cadastre for every cadastral municipality Unfortunately,
it was soon evident that such a plan was very ambitious
and could not be accomplished. In the period from 2000
to 2008, only around 200 cadastral surveys were started
(for ~5% of the Croatian territory), and only 30 have
been successfully completed. In other words, the real
property cadastre has been created only for these 30
cadastral municipalities, while the other municipalities
still use the land cadastre. The reason for this poor
statistics is unresolved legal statuses of property. In
other words, thanks to new technologies a survey can be
completed in a relatively short time, but the problems
arise when the data are given to public view and new
land registries formed.
Owing to the occurred problems, in February 2007 a
new Law on State Survey and Real Property Cadastre
was issued [12]. This law introduces an exclusive concept
of maintenance of the existing land cadastre and its
gradual adjustment to a real property cadastre. It means
that cadastral documentation of real property cadastre
can be made gradually, by transferring one or more land
cadastral parcels into real property cadastral parcels (for
part of a cadastral municipality) in cadastral munici-
palities which fulfil certain prerequisites. One of the
motives for such a concept is that, according to the State
Geodetic Administration’s data, annually in Croatia for
registering new or changed cadastral parcels and
buildings around 40 000 parcel or other geodetic reports
are made. These reports are made by authorised
geodetic companies and they are technical support for
maintaining the cadastral and land registry documenta-
tion with the actual field conditions and their harmoni-
sation. The idea of gradual set-up of a real property
cadastre is to follow the rules for making parcel and
other geodetic reports, so as to register data for each
cadastral parcel (real property) which correspond to the
state in the field, and to these records join the data on
their legal status. The result of such a report for a single
cadastral parcel (or a group of parcels) should be
identical to the result from cadastral survey and draw-up
20 Survey Review 2012 VOL 44 NO 324
of cadastral documentation for a part of or whole
cadastral municipality. The difference is in the proce-
dure (for maintaining cadastral documentation the
general administrative regulations apply) and the fact
that reports for maintaining cadastral documentation
are commonly financed exclusively by the real property
title holder on cadastral parcel, i.e. owner and
authorised person.
The law does not prevent new cadastral surveys, and
they will be conducted, especially in the areas with a
strong market and high prices of real property (coastal
and bigger urban areas). In other areas, the real property
cadastre will be set up gradually, by transferring the
cadastral parcels.
The prerequisites to be fulfilled for the gradual set-up
of real property cadastre are:
N harmonised areas and borders of cadastral munici-
palities in the cadastre and the land registry
N a plan for subdividing areas, in which cadastral
parcels are associated with the same cadastral parcel
address
N a geodetic network report
N a division into detailed sheets of cadastral maps
N a cadastral map in digital format
N a digital orthophoto map and a digital terrain model
N homogenisation of the cadastral map
N comparison of the digital cadastral map with the
written part of land cadastral documentation and
making a list of differences
N the existing land cadastre data transferred into lists
and possessory sheets of the real property cadastre
N making subdivision and other geodetic report collec-
tions and document collections.
Most of these prerequisites have already been fulfilled or
are to be soon, and the most demanding task is
homogenisation of the cadastral map.
Homogenisation of the cadastral map
Homogenisation of the cadastral map is a method for
improving quality of the vectorised cadastral data
regarding their homogeneity. It is also used to obtain
data in the state coordinate system. This method has
been used in many countries (Austria, Switzerland)
before entering the data into land information systems
[2,6,9]. With development of survey, mapping and
information technologies, the procedure of cadastral
map homogenisation has changed in some segments, but
the goals stayed the same. The activities increased
significantly with the informatisation and software
(CAD programme), which facilitate and speed up work
on the cadastral map homogenisation [14].
Maintenance and renewal of the cadastral map
changed in the past due to changes in the legal systems
and available technologies. However, all the time the
survey data were incorporated into the existing cadastral
maps, i.e. into the boundaries of existing cadastral
parcels, with low accuracy. As the technology of data
collection advanced, fitting of ‘accurate’ data into the
‘inaccurate’ cadastral map occurred. If we add also non-
updating of the cadastre with the state in the field, and
the regulations which did not follow the advancements,
the condition of the cadastral map data became
inadequate (Fig. 3).
The homogenisation procedure does not change the
recorded legal statuses, but only improves the quality of
technical data. This procedure does not harmonise the

3 Cadastral map overlapped with a digital ortophoto prior
to homogenisation
cadastral data with the land registry, but it contributes to
harmonisation with the state in the field. The improve-
ment adds to homogeneity and accuracy of the existing
data, and the assumption is that with each new survey
even of the smallest part of cadastral municipality (a
single cadastral parcel), those data, when entered into a
digital cadastral map, will not have to be amended. As
opposed to the fitting of ‘accurate’ data into the ‘inaccu-
rate’, in the homogenisation procedure the approach is
reversed. The data in the existing cadastral map are fitted
into the data gained from survey.
For conduction of the homogenisation project the
most suitable spatial unit is a cadastral municipality.
Borders of a cadastral municipality are in the field
defined by visible markers, which can also serve as
identical points. Identical points are boundary points,
identical in the field and the cadastral map, and
measured directly in the field in the state coordinate
system. To start the homogenisation it is necessary to
have all cadastral municipality sheets vectorised in a
unified digital display with coordinates in the original
coordinate system, which are then put to transforma-
tion. Works on the transformation consist of two parts.
The first is global transformation by which identical
points are checked. Global transformation of coordi-
nates can be done by the Helmert or affine transforma-
tions, which are most frequently used in practice [5], by
taking overnumerous points, assessing the accuracy and
calculating other deviations at the identical points after
transformation. Transformation parameters are calcu-
lated according to defined points, by the least squares
method, and one set of parameters is used for
transformation of all points. The calculated parameters
are of global character. Owing to cadastral data
features and the assumed causes of deformation, the
best results are got by the affine transformation. The
transformation is repeated as long as all unreliable
identical points are found and excluded from influen-
cing the final result.
Local transformation will also pinpoint potentially
left-over unreliable identical points and it is repeated till
achieving the defined conditions, and its result is final.
Local transformation employs the inverse distance
weighted interpolation. This method is based on the
assumption that shift of a point should be influenced
most by the nearby identical points and less by the more
distant identical points. The simplest form of inverse
Cetl et al. Towards a real property cadastre in Croatia
4 Cadastral map overlapped with a digital ortophoto after
homogenisation
distance weighted interpolation is sometimes called
‘Shepard’s method’ [16], by which all identical points
after transformation get defined coordinates in the target
system. Setting of this condition requires calculating
transformation parameters for each point in space which
is being transformed. All identical points influence these
parameters, but much more those closest to the identical
point. There is a need to introduce weights here, which are
to influence the parameters, and most commonly weights
are determined as an inversed square-distance. Intro-
duction of the weight criterion enables calculation of
transformation parameters for each point separately, so
we can say they are of local character. In this way
accurate coordinates of identical points in the target
system are kept, and vectorised details in their environ-
ment are geometrically adjusted (Fig. 4).
Homogenisation also changes technical areas of
cadastral parcels. This change has to stay within the
prescribed limits. Cadastral parcels of which, in homo-
genisation, the technical area changes for less than 20%
or to a maximum of 1000 square metres are considered
unchanged and the new area is then accepted.
Differences greater than those are possible only when
correcting rough errors during the formation and the
maintenance of the cadastre.
Homogenisation of the cadastral map is essential to
maintain the land cadastre data and transform them into
a real property cadastre, according to legal regulations.
By homogenisation, which in the upcoming period is to
cover around 70% of the Croatian area, i.e. all cadastral
municipalities surveyed under the Austro-Hungarian
Empire, the prerequisites will be accomplished for a start
of single cadastral parcel transformation from the land
cadastre into the real property cadastre. If the real
property cadastre is created gradually, and a corre-
sponding corrective land registration process has to be
undertaken for the formation of the real property,
cadastral parcels of the real property cadastre are
formed based on the corresponding verified geodetic
report and the results of the corrective procedure, after
which the cadastral parcels are entered in the corre-
sponding land registry sheet.
Further development
Since in Croatia the national program ‘Organized Land’
is under development, the homogenised cadastral data
will be the basis for harmonising these two registries.
Survey Review 2012 VOL 44 NO 324 21
Cetl et al. Towards a real property cadastre in Croatia
The program initiated in 2003 and planned to last for
6 years (end of 2009) with the objective of streamlining
and regulating the real property registration. Along with
the efficient functioning of both registers, the main goal
is to, by implementing the adequate technology and
developing the business processes, create the real
property registration and cadastre joint information
system, or rather establish such a level of cooperation
between the cadastre and land registries in which the
systems will be interlinked and exchange the data related
to the real properties. The result will be a common
database of the cadastre and land registry and a single
application for keeping and maintaining the data. This
will yield numerous benefits for the users such as the
time needed to access the data and make a registration
will be reduced and the citizens will be able to see at one
place the ownership structure of a real property and its
location in space.
Conclusions
Owing to historical circumstances and different socio-
political regimes, Croatia was left in an unsatisfactory
state of land administration. The fast growing post-war
economy and the booming financial and real proper-
ty market require a unified, simple and efficient land
administration system. In this context, Croatia has
initiated a number of activities towards improvement
of the existing cadastre system and land registry. This
improvement is essential not only for Croatia joining the
European and world integrations, but also as a support
to the real property market and further economic
development.
The original concept of cadastral system improvement
through a new survey proved to be unrealistic, and the
alternative is the concept of single cadastral parcel
transformation from the land cadastre into a real
property cadastre. This ensures that all parcels for
which there is interest will enter the real property
cadastre, and those for which there is no interest will still
be recorded in the land cadastre. In other words, the real
property cadastre will gradually develop through new
surveys of single parcels, initiated and financed by the
owners, and not through expensive and long surveys of
whole cadastral municipalities. Considering the unsatis-
factory state of the cadastral map, a prerequisite for the
new concept is its homogenisation. Such homogenised
cadastral map will be then entered into joint information
system as a basis for further data harmonisation
between land registry and cadastre.
22 Survey Review 2012 VOL 44 NO 324
Homogenisation of the cadastral map is a procedure
of geometric transformations, by which the existing
vector data of cadastral map are homogenised geome-
trically and transformed form the old coordinate
systems into the state coordinate system. This procedure
in the upcoming period needs to be done for a bigger
part of Croatia, but it is essential as an accurate basis for
gradual set-up of a modern real property cadastre and
reform of the land registry in a unified land information
system.
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