Seite 1 von 6 The Swiss Lex Koller remains in force without accentuation Resource type: Article Status: Law stated as at 01-Nov-2015 Jurisdiction: Switzerland The Swiss Federal Act on Acquisition of Real Estate by Persons Abroad (the so-called Lex Koller) restricts the acquisition of Swiss residential and other non-commercial real estate by foreign (non-swiss) persons. Since its inception in 1983 (similar laws existed as from the 1960s) the Lex Koller has been liberalised in several aspects. However, it has been highly debated in recent years whether the Lex Koller should be abolished altogether or made even stricter. This article examines: the liberalisation of the Lex Koller over time; the significance of the Lex Koller for transactions; and when the Lex Koller rules apply. This article is part of the global guide to corporate real estate law www.practicallaw.com/realestate-mjg. Wolfgang Muller and Alexander Vogel, Meyerlustenberger Lachenal Contents Liberalisation of the Lex Koller over time Significance of the Lex Koller for transactions When the Lex Koller rules apply Person abroad Real estate subject to the Lex Koller Contributor profiles Dr Wolfgang Muller MBA, Partner, Co-Head Real Estate Dr Alexander Vogel LLM, Partner, Head Corporate and Finance The Swiss Federal Act on Acquisition of Real Estate by Persons Abroad (the so-called Lex Koller) restricts the acquisition of Swiss residential and other non-commercial real estate by foreign (non-swiss) persons. Since its inception in 1983 (similar laws existed as from the 1960s) the Lex Koller has been liberalised in several aspects. However, it has been highly debated in recent years whether the Lex Koller should be abolished altogether on the one hand, or made even stricter on the other. While the Swiss government recommended to the Swiss Parliament in its report of 4 July 2007 to repeal the Lex Koller in its entirety, it published an additional report to maintain the Lex Koller on 13 November 2013. The debate was fuelled by two motions of Jacqueline Badran, member of the Swiss Parliament (that is, of the Swiss National Council), filed in September 2013 and aimed at tightening the Lex Koller. The first motion intended to apply the Lex Koller again to commercial properties. The second motion wanted to ban non- Swiss persons from acquiring participations in Swiss real estate funds and listed real estate companies. Despite the fact that both motions have been dismissed by the Swiss Parliament in a definite decision in June 2014, the Swiss Federal Council announced in April 2015 its intention to revise and tighten the Lex Koller. The consultation period is scheduled to commence in December 2015 and to last until April 2016. It is unclear, however, at what point of time such proposal would then be debated in the Swiss Parliament, but it is very unlikely that this will be the case before 2017. It is expected that the Swiss Federal Council will not only propose to implement the Badran motions (with the exception that the second motion - ban of non-swiss persons from investing in Swiss collective investment schemes investing in real estate - will not apply to Swiss real estate funds but only to listed real estate companies) but also to strengthen the enforcement of the Lex Koller, to introduce an obligation for non-eu and non-efta citizens to sell their Swiss property when leaving the country and to motivate the Swiss cantons to transfer their competencies in relation to the Lex Koller to the Swiss Confederation. Some observers have therefore renamed the Lex Koller as Lex Sommaruga according to the current Swiss justice minister (who might, however, change the department at the end of this year after the general re-election of the federal council). The approach of the Swiss Federal Council and the Federal Department of Justice and Police is unusual, taking into account the informal rule in Switzerland that any proposals for new laws or changes of existing laws that have been dismissed by the Swiss Parliament should not be brought to the Swiss Parliament again before a period of about five years has passed. It is no surprise that the Swiss real estate industry has organised several initiatives to fight the proposals of the Federal Department of Justice and Police. Hence, the debate regarding the future of the Lex Koller will continue and is expected to intensify. In view of the cooling off in particular of the market for commercial real estate, there is a good chance that the proposals of the Federal Council will be rejected to a large extent again by the Swiss Parliament. This article examines the Lex Koller as it is currently in force and effect by way of the following sections:
Seite 2 von 6 Liberalisation of the Lex Koller over time. Significance of the Lex Koller for transactions. When the Lex Koller rules apply. Liberalisation of the Lex Koller over time Since its inception in 1983 the Lex Koller has been considerably liberalised in several steps to allow foreigners to invest in Switzerland's real estate market: In 1997, the Swiss commercial real estate market, including the mortgage loan financing market, was opened to foreign investors. Any premises on which commercial activities are carried out are now excluded from the authorisation requirements of the Lex Koller. This is regardless of whether the real estate is used directly by the foreign investor or whether it is rented or leased by the foreign investor to a third party for pure investment purposes (provided that the third party uses the leased premises for commercial purposes). In 2002, and due to the Swiss bilateral agreements with the EU, the principle was introduced that EU/EFTA nationals with a permanent residence in Switzerland are to be treated like Swiss nationals. Since 2005, shares in residential property investment corporations listed on a Swiss stock exchange can be purchased by foreign investors without an authorisation. However, if such an investment corporation is controlled by foreigners, it still needs an authorisation for the acquisition of new residential properties. As a consequence, the acquisition of business premises by foreign nationals is, as a rule, not restricted under the Lex Koller. In contrast, the residential real estate market remains heavily restricted. Significance of the Lex Koller for transactions The Lex Koller applies to both asset deals and share deals, that is, independent of whether the transaction is structured as, among others: A straight sale/acquisition. Indirect acquisition by way of acquiring the shares of an entity holding such real estate. Exchange of real estate. Gift. Acquisition of assets and liabilities of a business, or the restructuring of an existing entity by way of merger, demerger, asset transfer and so on. In asset and share deals, a transaction within the scope of the Lex Koller can only enter into effect after the Lex Koller authorisation has been granted: If such a transaction is completed without applying for an authorisation or before the authorisation has been granted, the transaction becomes null and void. To the extent the contract has already been fulfilled, the parties can claim back their payments made. The authorities must correct the unlawful situation by having the entry in the real estate registry revoked, or by forcing the buyer to sell the property. In practice, the parties to a planned transaction can often not conclusively decide whether the transaction is subject to the Lex Koller. In these cases, the buyer has to file a request for a ruling with the competent authority, before entering into the transaction. The following summary of the Lex Koller rules highlights that, in certain cases, finding a suitable deal structure may decide whether a transaction is possible at all.
Seite 3 von 6 When the Lex Koller rules apply Real estate transactions are subject to the Lex Koller if both: The acquirer (or the beneficial owner of the acquiring entity) is a person abroad within the meaning of the Lex Koller. The acquisition object qualifies both with regard to its use (non-commercial) and type of right to be acquired (transaction) as real estate within the meaning of the Lex Koller. Person abroad Individual persons. The Lex Koller defines individual persons abroad as being either: Individuals resident or domiciled abroad. Individuals living (as a temporary resident) in Switzerland, but who are neither nationals of EU/EFTA member states nor holders of a valid permanent residence permit (the C permit). Legal entities. Legal entities are considered persons abroad if they are either: Domiciled abroad (irrespective of whether they are controlled by persons abroad). Controlled by persons abroad. Control of a legal entity by persons abroad can be exercised by different means, and is assumed by law if persons abroad either: Hold (or control, whether directly or indirectly) more than one-third of the entity's equity capital or voting rights. Provide significant amounts of debt capital to the entity. The relevant amount of debt capital triggering foreign control depends on the balance sheet structure of the entity. It is equal to at least 50% of the difference between the company's assets and its debts with respect to persons that are not subject to the Lex Koller. Real estate subject to the Lex Koller Non-commercial use. The Lex Koller requires persons abroad to obtain a permit from the relevant authorities to acquire Swiss real estate, unless the real estate serves as a permanent business establishment for the exercise of an economic activity. Economic activities in the sense of the Lex Koller include industrial production, trading or service activities. Exceptions. Real estate relating to a permanent business establishment can, as an exception, include residential property, for example if: The residential property is necessary for the business, such as a caretaker's flat. A separation from the business is impossible or unreasonable. The residential property is mandatory due to housing unit quotas under planning or zoning regulations. However, the mere building, sale or rental of residential property does not qualify as an economic activity in the sense of the Lex Koller. Further: Persons abroad can purchase commercial real estate with land reserves without a permit, as long as the land reserves do not exceed one-third of the property surface. Land for development purposes can be acquired by persons abroad, provided construction works on buildings to be used for economic activities begin within about one year. A person abroad can acquire residential property by way of acquisition of, or a merger with, a company whose main business purpose is not the acquisition, holding and sale of residential property, and provided the value of the residential property is less than 30% of the company's assets. Any real estate not qualifying as commercial real estate as described above is subject to authorisation, unless another specific exemption is available. Authorisations to acquire residential property are available to acquire a holiday home or serviced flat. Such real estate must be in an
Seite 4 von 6 area designated by the cantonal authorities as a holiday resort. The cantons and tourist municipalities can implement their own restrictions. They may decide to: Ban authorisations for a specific location. Permit acquisitions of condominiums only, and only up to a certain quota. Limit the annual number of authorisations. Only permit the purchase of residences that are already foreign-owned. In practical terms, persons abroad can only acquire second homes in designated tourist areas, mainly in the areas adjacent to the Alps and in certain parts around Lake Geneva. Real estate transactions subject to the Lex Koller. Besides the direct purchase of real estate, the Lex Koller also covers transactions which give persons abroad de facto control over real estate, for example through: Leaseholds. Granting and exercise of a right of purchase. Right of first refusal or a right of repurchase. Granting of financing. The term "acquisition of real estate" therefore also includes the acquisition by way of: Joint ownership or co-ownership (including condominium ownership). Leasehold, occupancy or usufruct rights to real estate. Most importantly, the acquisition of shares (including non-voting shares) in a legal entity, of an interest in a company without legal personality (such as a partnership) or of a unit of an investment vehicle (including investment funds) whose de facto purpose is the acquisition of real estate. However, the acquisition of shares listed on a stock exchange in Switzerland or investment fund units if they are regularly traded, even if such trading is off-exchange, does not trigger the obligation to obtain a Lex Koller authorisation. Therefore, the purchase of a single share in an unlisted company involved solely or substantially in acquiring or holding residential property or dealing therein requires prior authorisation under the Lex Koller. A long-term lease with unusual contractual terms may also be subject to the authorisation requirement under the Lex Koller. Examples of such terms are: The one off-payment of the rent in advance or the waiving of consent to fundamental architectural alterations. The linking of a rental contract to a loan agreement with offsetting of rent against interest on the loan. The financing of the purchase or development of the real estate in excess of the usual lending limit applied by Swiss banks. A construction ban and similar ownership restrictions on neighbouring land. Contributor profiles Dr Wolfgang Muller MBA, Partner, Co-Head Real Estate Meyerlustenberger Lachenal
Seite 5 von 6 T +41 44 396 91 91 F +41 44 396 91 92 Ewolfgang.muller@mll-legal.com W www.mll-legal.com Professional qualifications. MBA, 1996; admitted to the bar in Switzerland, 1993; University of Zurich, Master of Law 1990/PhD in Law 1992. Areas of practice. Real estate and rental law; capital markets; M&A and private equity. Recent publications. Hot Topics and Recent Developments in Construction and Real Estate law in Switzerland, Expert Guide - Construction & Real Estate 2015, page 16 to 21. Construction & Real Estate Review 2014, Who's Who Legal Switzerland 2015. Commercial Real Estate Switzerland, Lawyers Monthly Magazine June 2015. Dr Alexander Vogel LLM, Partner, Head Corporate and Finance Meyerlustenberger Lachenal T +41 44 396 91 91 F +41 44 396 91 92 Ealexander.vogel@mll-legal.com W www.mll-legal.com Professional qualifications. Switzerland, 1992; New York Bar, 1994. Areas of practice. M&A and private equity transactions; capital markets; banking and finance; collective investment schemes; corporate real estate/real estate financing. Recent publications. To what extent are Real Estate Companies subject to the Swiss Federal Act on the Prevention of Money Laundering and law for collective investments schemes?, Expert Focus, August 2015. Real estate and real estate related rights as objects of a bulk transfer transaction, AJP/PJA, July 2015. Construction & Real Estate Review 2014, Who's Who Legal Switzerland 2015. Legal hurdles related to the acquisition of real estate in Switzerland by foreign investors", Zuger Steuerpraxis 2011. "A strong performer", IFLR Real Estate 2011. "Growing certainty", IFLR Real Estate 2010. "Die Kommanditgesellschaft nach KAG als Anlagevehikel für Real Estate" ['The limited partnership according to the Federal Act on Collective Investment Schemes as investment vehicle for real estate']. Resource information Resource ID: 8-551-2765
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