Documents

Fides et Libertas

The Journal of the International Religious Liberty Association
1998 Fides et Libertas

The Contemporary Form of Registering Religious Entities in Spain

Rosa Maria Martinez de Codes

Vice Director of Religious Affairs

Ministry of Justice of the Government of Spain

Madrid

Professor

Universidad Complutense de Madrid

Introduction

               This article is intended to serve as a basis for reflection on both the achievements and the problems that registration of religious organizations currently poses in the administrative practice of the Spanish state. We do not enter into doctrinal debate, but rather try to advance the search for criteria that reconcile religious liberty and cultural values and traditions, following the legal guidelines established in 1978.

               It is necessary to begin with an explanation of the fundamental set of rules which serves as a legal frame of reference to the existence in the Spanish legal system of a Register of Religious Entities.¹

               The Spanish Constitution of 1978 substantially changed previous policy concerning religion. Thus, from a traditionally religious state has evolved a pluralistic, non-confessional state. Article 1of the Constitution designates liberty, equality, and pluralism as higher values.² Applied to religious experience, these values are the specific inspiration of the principles of freedom, equality, and religious pluralism provided by Articles 14 and 16.

               Article 16 of the Constitution became the basis for the relations the state maintains with individuals and with religions. First, “Religious freedom and freedom of worship of individuals and communities are guaranteed without limitations to religious manifestations other than those necessary to maintain public order as protected by law.” Second, “No one shall be forced to state ideology, religion, or belief.” Third, the Constitution states that “no religion shall have state character.” Notwithstanding this separation between religious confessions and the state, “public authorities shall bear in mind the religious beliefs of Spanish society and shall maintain the resulting relationship of cooperation with the Catholic church and the other religions.”³

               In order to comply with this principle of cooperation or collaboration, public authorities may sign agreements with religious confessions. Accordingly, on January 3, 1979, Spain signed agreements with the Holy See⁴--agreements which followed the path of international treaties regulated by Articles 93 and 96 of the Constitution.

               To make effective the fundamental right of religious freedom, Organic Act 7/1980 on Religious Freedom was adopted on July 5, 1980.⁵ Article 7 of this law develops the possibility of agreements with other religions: “The State, bearing in mind the religious beliefs existing in Spanish society, shall establish, where appropriate, agreements and accords of cooperation with those churches, religious confessions, and communities inscribed in the Registry which, because of their scope and number of faithful, are clearly established in Spain. In any case, these agreements shall be approved by law in Congress.”

               In fulfillment of these provisions, the Agreements of Cooperation Between the State and the Federation of Evangelical Religious Entities of Spain, the Federation of Israelite Communities of Spain, and the Islamic Commission of Spain were signed on April 28, 1992.⁶ The signing of these agreements presupposes the existence of a special law that goes beyond the scope of ordinary law to guarantee protection of the religious characteristics of each of these religions, as well as that of their members.

               Three fundamental requirements, when met, allow a religious organization to sign agreements of cooperation with the state:

               (1) The religious entity shall be legally recognized by entry in the Register of Religious Entities.⁷

               (2) The registered religious entity shall be clearly established in Spain by virtue of its scope of action and its number of adherents.⁸ Proof of establishment shall be given by the Advisory Committee on Religious Freedom⁹ which shall bear in mind the number of members and the territorial range of the particular confession.

               (3) Conclusion of agreements “should be studied from the perspective of general interest to Spanish society.”

I. Organization and Function of the Register of Religious Organizations

               The Register of Religious Entities was created by Article 5 of the Act of Religious Freedom of 1980, and is heir to the Registers of 1957 and 1967.¹⁰ Entries are presently made in the very different context of a non-confessional state. The record is a constituent registry, i.e., a registry that confers civil legal status to the religious entities recorded therein.

               Royal Decree 142/1981 of January 9, 1981, relating to the organization and regular function of the Register of Religious Organizations, advanced the regulatory process of registering religious entities.

               The concept of a religious entity has not been defined in the legal code of Spain.¹¹ This lack of definition is the cause of problems faced by the state in endowing a particular legal status to minority religious movements often quite different from the dominant culture. It is the dominant religious activity and style of worship which determine the acquisition of special status and the legal authority to operate as a religious entity.

               The acquisition of civil legal status for Catholic entities is based on Article 1 of the Agreement on Legal Affairs Between the Spanish State and the Holy See (January 3, 1979; see above). It was further implemented by a resolution adopted March 11, 1982, by the General Directorship of Religious Affairs. Article 5 of the resolution provides that the registration “of religious organizations that are part of the Catholic church shall proceed in accordance with the Agreement on Legal Affairs of 1979.”¹²

               Non-Catholic religious entities gain legal status through registration in the Register of Religious Entities, as regulated by the Organic Law of Religious Freedom and Royal Decree 142/1981.¹³

II. Typology of Organizations Eligible for Registration

               The Organic Law of Religious Freedom of 1980 provides for the registration of churches, religious confessions and communities, and religious federations.¹⁴ This law also permits these defined major entities to achieve their aims by the creation of associations, foundations, and other institutions. Lesser organizations are governed by general legislation.¹⁵

               A royal decree issued in 1981 allowed the major entities (churches, confessions, communities, and federations) to register their own orders, congregations, religious institutes, and other associations.¹⁶ Another royal decree (1984) authorized the registration of Catholic foundations.¹⁷

               The following is an estimate of the number of registered Catholic entities, as well as non-Catholic religious entities:¹⁸

               Of these 888 entities, 551 belong to one or another of the general religious federations which have signed an agreement of cooperation with the state:

               During the more than 15 years since the Register was established, at least two major insufficiencies have emerged. On the Catholic side, there are organizations that are clearly religious which have not been included: chapters, seminaries, and training centers for the clergy. Nor can non-Catholic religious foundations enroll.¹⁹ Further modification of the system is called for by the fact that religious groups have different forms of organization and operation.

III. Requirements for Registration

               According to the Organic Law of Religious Freedom (LOLR), registration is accomplished by means of an application accompanied by a document certifying that the applicant organization is indeed established in Spain, and a statement of purpose, denomination, operational system and authority, and representative agencies.²⁰ Regarding registration of minor organizations (congregations, orders, and subsidiary entities), regulations specify new requirements.²¹ The major body responsible for the smaller one must certify the religious objectives of the latter.

               Apart from these more formal requirements, the LOLR and its implementing regulations limit entries in the Register²² as follows: (A) To protect the right of all to exercise public liberties and fundamental rights. (B) To safeguard security, health, and public morality (each being an element of public order protected by law in a democratic society). (C) To control the activities of entities whose objectives are related to the study of and experimentation in psychic or parapsychological phenomena or the diffusion of humanist or spiritistic values or other objectives distinct from religious objectives.

               Aside from these limitations imposed by law to guide Register administration, no other eligibility requirements exist.

               Once the request for registration is presented, the General Directorate of Religious Affairs has six months to decide. Administrative silence is considered positive. The time limit for annotations and modifications is two months. The applicant may appeal a negative response to ordinary courts for judicial review and, specifically, the High Court.²³

               Experience has shown that requirements for registration are not fully sufficient to prevent instances of fraud. Under current legislation, it is possible to register a church composed only by its founders (and lacks the minimum number of members) because the LOLR does not define what can be considered a church or a denomination.²⁴ Neither does the law define religious purpose--which can be confusing. It comes close in the negative sense by, for example, leaving outside its scope of protection those organizations which propose the study of psychic or parapsychological phenomena or the propagation of humanist or spiritist values or similar objectives.²⁵

IV. What Does Registration Mean?

               It has already been stated that registration is one of the requirements, although not the only one, by which a religious denomination can arrive at an agreement with the state. It has been shown that religious entities recorded in the Register established at the Ministry of Justice are granted legal status. But legal status is not the only result. The Spanish legal system foresees at least the following additional favorable effects:

               (A) Corporate organizations are awarded rights to name, identity, and title over goods and assets, and, among others, the right to legal negotiation.²⁶

               (B) Deriving from the right of identity is the related right of independent internal organization and management of personnel. Registration thus guarantees independence and safeguards identity and belief.²⁷ The recognition of denominational autonomy implies a governmental admission that the religious entity does not have its origin in the state. Each denomination can organize itself internally as it sees fit, emphasizing those elements that differentiate it from other denominations and serve to identify it clearly, but always within the bounds of the Spanish legal system.

               (C) Registered entities benefit from tax exemptions and receive special treatment with respect to places and activities relating strictly to worship. The general criteria concerning fiscal benefits are based on the legal system’s recognition of religious denominations as non-profit or charitable organizations.²⁸ States the LOLR: “In the agreements or accords, and always respecting the principle of equality, fiscal benefits anticipated in the general legal system for non-profit entities and other organizations of a charitable nature may be extended to . . . churches, denominations, and communities” (Article 7, Paragraph 2). Application is, in practice, twofold: (1) The legal system which applies to charitable and non-profit associations; and (2) the specific system for religious organizations that have signed agreements with the state.²⁹ In sum, fiscal benefits to denominations are based on the manifestations of religious freedom reflected in the constitutional mandate of cooperation. For the sake of constitutional equality, the realization of cooperation is now achieved not only through agreements, but also by other means.

               (D) Only registered denominations may participate in advisory agencies of the administration. Example: The designation of representatives of clearly established religions to the Advisory Committee on Religious Freedom.³⁰

               (E) Those religious organizations that are clearly established (notorio arraigo) may participate in agreements of cooperation with the state.³¹

               Thus the registration of a religious organization confers rights that a nonregistered denomination does not have.

V. Problems and Questions

               Drawing from experience gathered since January 9, 1981, and the proclamation of Royal Decree 142/1981, the General Directorate of Religious Affairs (DGAR) presently administers, at least in some cases, the Register of Religious Entities on a broader scale of interpretation.

               Among the primary objectives of any regulation of religious organizations should be improvement of judicial security in the registration process, this to limit the discretionary power of those in charge. Further, the Register should be a clearly legal tool that manages its task faithfully, accurately noting the realities of the various religious associations to prevent the law from being broken.

               One method of minimizing fraud and eliminating bias on the part of administrators would be the recording of a clear legal definition³² of “confession” and “religious purpose.” Consensus of the registered religious organizations would facilitate this. Confusion rises from the varied terminology used in the legal system relative to religious denominations. The Constitution speaks of “communities” (Article 16.1) and “denominations” (Article 16.3). The Organic Act of Religious Freedom refers to “churches, denominations, and communities (Articles 5.1, 6, 7, and 8). The Royal Decree of January 9, 1981, concerning the Register of Religious Entities, appears to use the term “entity” (Articles 3.1, 7.3, and 8) in a comprehensive sense to include all the various religious organizations that may be registered: churches, denominations, communities, orders, congregations, institutes, associations, and federations (Article 2). In its revision of registry regulations, the General Directorate of Religious Affairs contemplates the defining, for the sole purpose of registration, a denomination or a community as an entity comprised of a significant group of faithful, endowed with a stable, internal, and independent structure, and possessed of one or more places of meeting or worship.

               Experience in the functioning of the Register of Religious Entities recommends the introduction of standard terminology that adapts denominational terminologies to conform to Article 16.3 of the Constitution and at the same time expands the list of organizational types eligible for registration.

               With respect to the duties Spanish law attaches to the concept “religious purposes,” we would emphasize (A) contributing to the definition of the scope of application of the LOLR; (B) establishing a requirement sine qua non for access to the Register; and (C) constituting for minority religious entities clear and unarguable conditions for access to the Register to be evaluated by the General Directorate of Religious Affairs at the time the document certifying religious purposes is presented.³³

               The DGAR is the administrative authority assigned to respond to petitions for registration. Obviously, its decisions are affirmative or negative.³⁴ It values the views of the Advisory Committee on Religious Freedom as well other agencies concerned with the registration process.

               The most problematic cases arise from the application of a denomination’s subsidiary entities.³⁵ The DGAR may decide that the certification does not adequately establish religious purpose. An analysis of DGAR decisions in the 1980s reveals that mere creation and nurture of social charitable works are not considered a religious purpose. Similarly, organizations that produce goods and services for the market cannot be considered religious either. Nor have judicial decisions revising administrative denials of registration helped in the defining of “religious purpose.”³⁶ Despite not having yet reached a standard judicial interpretation of this concept, the social reality in force and the experience acquired in the years of registry procedure advise a broadening of the idea that goes beyond the purpose of worship.

               In its reform of current regulations, the DGAR should include the function of charity. This term is understood to mean the practice of charitable activities of assistance inherent to the religious tradition. Such activities are performed freely and corporately by a major registered organization or by a dependent subsidiary. They are subject to the general provisions established in this area.

The importance of the Register of Religious Entities is demonstrated in its value to religious freedom.³⁷ Registration results in many important benefits flowing from religious freedom. The norms and practices of registration in those states that possess a common cultural tradition (as is the case of countries belonging to the Hispanic world) should facilitate the search for criteria that will help harmonize religious freedom with the values and traditions of our pluralistic societies. The search will help strengthen respect for the fundamental right of religious freedom. And the discovered criteria can be used in the development of provisions to reinforce peaceful cohabitation of the different peoples that make up our society.

NOTES

¹Most of the legislation mentioned in this text is in the process of being translated into English. See Spanish Legislation on Religious Affairs, Ministry of Justice, Madrid, 1998. Currently only the Spanish version is available. Real Decreto 142/1981, sobre organizacion y funcionamiento del Registro de Entidades Religiosas (Royal Decree [hereinafter RD] 142/1981, Concerning the Registration and Function of the Registry of Religious Entities), Official State Gazette (hereinafter BOE) 198, 27.

²See, e.g., J. Amoros: La libertad religiosa en la Constitucion espanola (Religious Freedom in the Spanish Constitution) 1984 (166-197); J. Gimenez and M. de Carvajal: “Principios informadores del actual regimen espanol de relaciones entre la Iglesia y el Estado” (“Formative Principles of Current Church-State Relations) in Iglesia y Estado en Espana (Church and State in Spain), Madrid, 1980, (3-51); L. Echevarria: “La nueva Constitucion ante el hecho religioso” (“The Religion Act and the New Constitution”) in El hecho religioso en la nueva Constitucion espanola (The Religion Act in the New Constitution), Salamanca, 1979 (43-75); D. Llamazares and G. Suarez Pertierra: “El fenomeno religioso en la nueva Constitucion. Bases de su tratamiento juridico” (“The Religious Phenomenon in the New Constitution. Foundation for Judicial Interpretation”) in Revista de la Facultade Derecho de la Universidad Complutense 61, 1980 (9-34); A. Molina: “La cuestion religiosa y la Constitucion” (“The Religion Question and the Constitution”) in La Constitucion espanola de 1978 (The Spanish Constitution of 1978), Valencia, 1980 (85-110); A. Molina: “La Iglesia y la Constitucion espanola de 1978” (“The Church and the Spanish Constitution of 1978") in Anales Valentinos VI/12, 1980 (385-438); A Mostaza: “El nuevo regimen de relaciones Iglesia-Estado segun la Constitucion espanola de 1978 y calificacion juridica del mismo” (“The New Regime of Church-State Relations Following Judicial Approval of the Spanish Constitution of 1978") in Aspectos juridicos de lo religioso en una sociedad plural (Judicial Aspects Concerning Religion in a Pluralistic Society), Salamanca, 1987 (211); L. Prieto Sanchis: “Las relaciones Iglesia-Estado a la luz de la nueva Constitucion: problemas fundamentales” (“Church-State Relations in Light of the New Constitution: Fundamental Problems”) in La Constitucion espanola de 1978 (The Spanish Constitution of 1978), Madrid, 1981 (319-374); P. J. Viladrich: “Los principos informadores del Derecho Eclesiastico espanol” (“Formative Principles of Spanish Ecclesiastical Law”) in Derecho Eclesiastico del Estado espanol (Journal of Spanish State Ecclesiastical Law), Pamplona, 1983 (169-262).

³D. Llamazares: “El Principio de cooperacion del Estado con las Confesiones Religiosas: Fundamentos, alcance y limites” (“State Cooperation with Religious Denominations: Foundations, Scope, and Limits”) in Anuario de Derecho Eclesiastico del Estado 5, 1989 (69-102); M. Lopez Alarcon: “Relevancia especifica del factor social religioso” (“The Specific Relevance of the Religious Social Factor”) in Relaciones entre la Iglesia y el Estado, Navarra, 1989 (465-478).

⁴See Instrumentos de Ratificacion de 4 de diciembre de 1979 de los Acuerdos de 3 de enero de 1979, entre el Estado espanol y la Santa Sede, sobre asuntos juridicos; sobre ensenanza y asuntos culturales; sobre la asistencia religiosa a las Fuerzas Armadas y servicio militar de clerigos y relgiosos; y sobre asuntos economicos (Instrument of Ratification, December 4, 1979, of the Accords of January 3, 1979, Between the Spanish State and the Holy See, Concerning Judicial Matters, Teaching, Cultural Matters, Religious Participation in the Armed Forces and Military Service of the Clergy, and Economic Matters), BOE 1979 (300). There are two preconstitutional agreements still in force: Instrumento de ratificacion de 29 de mayo de 1962, del Convenio de 5 abril de 1962, entre el Estado espanol y la Santa Sede, sobre reconcimiento, a efectos civiles, de estudios no eclesiasticos, realizados en Universidades de la Iglesia (Instrument of Ratification, May 29, 1962, of the Agreement of April 5, 1962, Between the Spanish State and the Holy See Concerning Recognition of the Civil Effect of Ecclesiastical Studies Realized in Church-Sponsored Universities), BOE 1962 (113); Instrumento de ratificacion de 19 de agosto de 1976 al Acuerdo de 28 de julio de 1976, entre la Santa Sede y el Estado espanol (Instrument of Ratification, August 19, 1976, of the Accord of July 28, 1976, Between the Holy See and the Spanish State), BOE 1976 (230). All these agreements imply a revision and they substitute the concordat signed between Spain and the Holy See in 1953. See Alberto de la Hera: “Pluralismo y Libertad religiosa” (“Pluralism and Religious Liberty”) in Anales de la Universidad Hispalense, Sevilla, 1971 (69).

⁵Organic Law of Religious Freedom (hereinafter LOLR), BOE 1980 (177). See M. J. Ciaurriz: La Libertad religiosa en el Derecho espanol. La Ley Organica de Libertad Relgiosa (Religious Freedom Under Spanish Law. The Organic Act of Religious Freedom), Madrid, 1984.

⁶Act 24/1992, 25/1992, and 26/1992, BOE 1992 (272). See also P. Lombardia: “Los Acuerdos entre el Estado y las Confesiones religiosas en el nuevo Derecho eclesiastico espanol” (“The Accords Between the State and Religious Denominations in the New Spanish Ecclesiastical Law) in Nuove prospective per la legislazione ecclesiastica (New Perspective on Ecclesiastical Legislation) Milan, 1981; D. Llamarzres: Acuerdos del Estado con las Confesiones Religiosas (FERDE y FCI) (State Agreements with the Religious Denominations), Madrid, 1990; J. A. Souto Paz: Derecho Eclesiastico del Estado (Ecclesiastical Law of the State), Madrid, 1992.

⁷See Article 5, LOLR, BOE 1980 (177); RD 142/1981, BOE 1981 (27); Provision 11 de Mayo de 1984 sobre publicidad de Registro de Entidades Religiosas (Provision of May 11, 1984, Concerning Publicity of the Registry of Religious Entities), BOE 1984 (125). See also a selected bibliography on the Registry in M. E. Olmos:“El Registro de Entidades Religiosas” (“The Registry of Religious Entities”) in Revista Espanol de Derecho Canonico 1988 (97-121). ⁸Article 7.1, LOLR, BOE 1980, (177).

⁹See Article 8, LOLR, BOE 1980 (177); RD 1890/1981, BOE 1981 (213). Concerning the authority and organization of the Commission, see Provision of October 31, 1983, BOE 1983 (311); J. A. Souto: “La Comision Asesora de Libertad Religiosa” (“The Advisory Commission on Religious Freedom”) in Revista de Derecho Procesal, 14, 1982; J. M. Contreras Mazario: “La Comision Asesora de Libertad Religiosa” (“The Advisory Commission on Religious Freedom”) in Revista Espanola de Derecho Canonico 1987, 131.

¹⁰See Olmos, supra Note 7 (97-100).

¹¹See M. Lopez Alarcon: “Entidades Religiosas” (“Religious Entities”), in Derecho Eclesiastico del Estado Espanol, Pamplona, 1993 (265-324); S. Bueno Salinas: “Confesiones y entes confesionales en el derecho espanol” (“Religious Denominations Under Spanish Law”) in Anuario de Derecho Eclesiastico del Estado 1988 (107-134); I. Zabalza: “Confesiones y entiadades confesionales en el ordenamiento juridico espanol” (“Religious Denominations in Spanish Judicial Authorization”) in Anuario de Derecho Eclesiastico del Estado 1987 (249-268).

¹²See BOE 1979 (76).

¹³See LOLR 1980 (177); RD 142/1981, BOE 1981 (27).

¹⁴See Art. 5, LOLR, BOE 1980 (177).

¹⁵See Art. 6, LOLR. BOE 1980 (177).

¹⁶See Art. 2, RD 142/1981, BOE 1981 (27).

¹⁷RD 589/1984, sobre Fundaciones Religiosas de la Iglesia Catolica (Concerning Religious Foundations of the Catholic Church), BOE 1984 (85).

¹⁸The following tabular data is derived from the database of the Registry of Religious Entities of the Spanish Ministry of Justice.

¹⁹See RD 589/1984, BOE 1984 (85); Acuerdo de la Comision Permanente de la Conferencia Episcopal espanola sobre procedimiento para la inscripcion de Asociaciones y Fundaciones en el Registro de Entidades Religiosa, XIII reunion del 11 a 13 de julio de 1984 (Agreement of the Permanent Commission of the Episcopalian Spanish Conference Concerning the Process of Inscription for Associations and the Foundation in the Register of Religious Entities, 13th Meeting of July 11-13, 1984), Boletin Oficial de la Diocesis de Cartagena, 1984.

²⁰See Art. 5 (2), LOLR, BOE 1980 (177).

²¹See Art 3, RD 142/1981, BOE 1981 (27).

²²See Art. 3, LOLR, BOE 1980 (177).

²³See Art. 6, RD 142/1981, BOE 1981, (27); Art. 4, LOLR, BOE 1980 (177). See A. Motilla: Sectas y Derecho en Espana: Un estudio en torno a la posicion de los nuevos movimientos religiosos en el ordenamiento juridico (Sects and Law in Spain: A Study of the New Religious Movements in Judicial Ordination), Madrid, 1990 (244-253).

²⁴See I. C. Iban (et al., eds.): “Las confesiones religiosas” (“Religious Denominations”) in Curso de Derecho Eclesiastico (Course on Ecclesiastical Law), Madrid, 1991, (217-278); J. M. Gonzalez del Valle: “Confesiones religiosas” (“Religious Confessions”) in Derecho Eclesiastico del Estado espanol (Ecclesiastical Law of the Spanish State), Pamplona, 1993 (227-263); A Motilla: “Aproximacion a la categorica de Confesion religiosa en el Derecho espanol” (“Approximation of the Classification of Religious Denominations Under Spanish Law”) in Il Dirito Ecclesiastico, 1989 (169).

²⁵See Art. 3 (2), LOLR, BOE 1980 (177).

²⁶See 2 Spanish Civil Code, Chap. 2, Arts. 35-39.

²⁷See Art. 6 (1), LOLR, BOE 1980 (177).

²⁸Ley 30/1994 de Fundaciones y de incentivos Fiscales a la participacion privada en actividades de interes general (Disposicion adicional quinta) (Law 30/1994 Concerning the Establishment and Fiscal Incentives for Primate Participation in Activities of General Interest), BOE 1994 (282); RD 765/1995 por el que se regulan determinadas cuestiones del regimen de incentivos fiscales a la participacion privada en actividades de interes general (Disposicion adicional segunda) (Governing Fiscal Incentives for Private Participation in Activities of General Interest), BOE 1995 (123); Real Decreto 589/1984 sobre fundaciones de la Iglesia Catolica (Concerning the Establishment of the Catholic Church), BOE 1984 (85).

29See Instrumento de Ratificacion de 4 de deciembre de 1979 de los Acuerdos de 3 de enero de 1979 entre el Estado espanol y la Santa Sede, sobre asuntos juridicos (Instrument of Ratification, December 4, 1979, of the Accord of January 3, 1979, Between the Spanish State and the Holy See Concerning Judicial Matter), BOE 1979 (300); Act 11, Act 24/1992, Act 25/1991,and Act 26/1992, BOE 1981 (213).

³⁰See Art. 1 (a), RD 1890 (1981).

³¹See Art. 7 (1), LOLR. Concerning the academic debate on notorio arraigo, see J. Leguido: “Dos cuestiones en torno a la libertad religiosa: control administrativo y concepto de notorio arraigo” (“Two Questions Relating to Religious Freedom: Administrative Control and the Concept of ‘Notorio Arraigo’”) in Revista Espanola de Derecho Administrativo 44, 1984, (683-688); M. J. Villa: “Reflexiones en torno al concepto de notorio arraigo en el articulo 7 de la Ley Organica de Libertad Religiosa” (“Reflections on the Concept of ‘Notorio Arraigo’ in Article 7 of the Organic Act of Religious Freedom”) in Anuario de Derecho Eclesiastico del Estado 1985, (143-184).

³²See E. Gardia de Enterria and T. R. Fernandez Rodriguez: Curso de Derecho Administrativo, Madrid, 1990; F. Sainz Moreno: Conceptos juridicos, interpretacion y discrecionalidad administrativa (Judicial Concepts: Interpretation and Judicial Discretion), Madrid, 1976. This is an explanation of the theory of indeterminable juridical construction.

³³Art. 3 (2), RD 142/1981, BOE 1981 (27).

³⁴For a study of administrative resolutions, see M. J. Roca: “Aproximacion al concepto de fines religiosos” (Approximation of Religious Ends) in Revista de Administracion Publica 132, 1993 (453-460).

³⁵See Art. 1 (3), Act 24/1992, Act 25/1992, Act 26/1992, BOE 1992 ( 272); Resolucion de 11 de marzo de 1982 de la Direccion General de Asuntos Religiosos sobre la inscripcion de entidades de la Iglesia Catolica en el Registro de Entidades Religiosas (Resolution, March 11, 1982, of the General Directorate of Religious Affairs Concerning the Inscription of Entities of the Catholic Church in the Registry of Religious Affairs), BOE 1982 (76).

³⁶A. C. Alvarez Cortina: El derecho eclesiastico espanol en la jurisprudencia postconstitucional (1978-1990) (Spanish Ecclesiastical Law in Post-Constitutional Jurisprudence (1978-1990)), Madrid, 1991.

³⁷See S. Bueno Salinas: “El ambito de amparo del derecho de libertad religiosa y las asociaciones” (“The Full Reach of the Law of Religious Freedom and Association”), in Anuario de Derecho Eclesiastico del Estado, 1985 (185-202).

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