盧燕明 訴 建築物上訴審裁小組及另一人

HCAL 39/2010

香港特別行政區

高等法院原訟法庭

憲法及行政訴訟2010年第39號

____________

（一併審理）

判案書

1.  本案中的兩位申請人分別為筲箕灣東大街107號2樓及東大街109號4樓的業主。建築物事務監督在2008年2月20日分別就該物業內的一些潛建物發出了清拆令，關於東大街107號2樓，清拆令針對的建築工程如下：

(a)    在側面的外牆附建一個新建物；

(b)    在側面的外牆開鑿一個通口，並裝上一道門，以通往新建物；及

(c)    在側面的外牆附建一個金屬支架。

關於東大街109號4樓，監督的清拆令針對的建築工程如下：

(a)    在內閣的外牆附建一個新建物；

(b)    在內閣的外牆開鑿一個通道，並裝上一道門，以通往新建物；及

(c)     在前面的外牆附建一個花盤架。

2.  就着這些清拆令，涉案物業的業主曾向建築物上訴審裁小組提出上訴。在清拆令發出時，東大街107號2樓的業主是甘長求先生，因此針對該物業的清拆令之上訴是由他提出。審裁小組就兩項上訴一併進行初步聆訊。聆訊後，審裁小組在2010年1月13日頒布「裁決」判定在該兩項上訴中均沒有充分理由召開全面聆訊，駁回這兩項上訴。

3.  事實上，甘長求先生在2008年3月10經已將東大街107 號2樓的物業轉讓給甘蕊小姐，即HCAL 48/2010的申請人。

4.  兩名申請人針對審裁小組的決定向法院申請司法覆核。法院分別於2010年4月28日及5月10日給予司法覆核許可。

5.  監督的清拆令是根據建築物條例第24條發出。該條例規定如下：-

「凡有任何建築物在違反本條例任何條文的情況下建成，或有任何建築工程或街道工程曾經或正在於違反本條例任何條文的情況下進行，建築事務監督可藉書面命令規定 ─ (a) 拆卸該建築物、建築工程或街道工程；或 (c) 對該建築物、建築工程或街道工程作出所需的改動，使其符合本條例條文，或以其他方式使違反本條例條文的情況得以終止，並就每一個案，指明須展開和完成命令所規定進行的拆卸、改動或工程的限期。」

6.  就建築物而言，按照法例的規定，建築事務監督發出清拆令的權力是針對違反建築物條例任何條文的情況下建成之建築物。若就這個課題有甚麼相關的事實爭議，監督及（如有上訴的話）審裁小組必須就該等事實爭議作出相關的事實裁決方能確立清拆令的合法性。另一方面，如監督或審裁小組能夠確定縱使接納業主或上訴人提出的事實基礎在法律上仍然不能反駁有關建築物是在違反建築物條例的情況下建成之立論，則該等事實爭議並不屬於關鍵性的爭議，監督及審裁小組可以在毋須就該等事實爭議作出裁決下確立清拆令的合法性。

7.  關於涉案清拆令針對的建築物是在甚麼情況下建成，申請人與監督就相關的事實存有重大的分歧。申請人聲稱這些建築物是在興建整座大廈同時建成，並提出一些證據來支持他們的論點，包括一位申請人認為是建築工程專家的人士從技術的角度去分析相關建築物的結構及一些在該大廈入伙紙發出後不久遷入的住客關於有關建築物經已存在的證供。

8.  另一方面監督根據這幢大廈的批准圖則沒有顯示這些建築物的存在，指稱他們是在其後加建。

9.  本席在閱讀過審裁小組的書面裁決內列出的判決理後，認為審裁小組並沒有就有關的建築物是否與整幢大廈一同建成的事實爭議作出裁決。

10.  雖然審裁小組在裁決的第20段有以下的說法：

「根據該處所在的樓宇的批核圖則，有關違建工程並不存在。由於在建成/興建有關違建工程時並無按照規定取得監督的批准及同意，故屬違例。」

但是在閱讀過判決的上文下理後，本席認為審裁小組在這一段中是指出有關工程並不顯示在批核圖則，並非裁定事實上這些工程並沒有與樓宇一同興建。

11.  本席已提及就這個事實爭議，申請人向審裁小組呈交了相關的證據來證明他們的案情。審裁小組不但沒有聽取相關的證供，監督的代表律師沒有就這些證據作出盤問，審裁小組在判決內亦沒有交代為何不接納這些證據。縱使審裁小組並不是司法單位，但就本案而言基於這項事實爭議在證據上的嚴重分歧，本席認為若審裁小組的裁決是建基於不接納申請人提出的證據，按Doody v Secretary of State for the Home Department [1994] 1 AC 531 一案訂立的公平準則，審裁小組應該就推翻申請人的證據作出一些交代。

12.  本席認為審裁小組沒有作出相關的交代，顯示他們的裁決並不是基於他們在事實爭議上否定申請人的案情，而是基於他們接納了代表監督的陳律師之法律論點。按陳律師的陳詞，核准圖則是監督的最終參考文件，若相關的建築物不在核准圖則內，他們便屬於違例建築，監督可以引用第24條的權力發出清拆令。因此，有關的建築物是否與整幢大廈同時建成並不重要。

13.  這幢大廈是在1958至59年間興建，經監督驗樓後入伙紙是在1959年4月6日發出，因此在考慮有關的建築工程是否事先獲得建築事務監督的批准之情況下展開應該是參照1958至59年適用的法律及當時的實際運作，見《釋義及通則條例》第23條（b）款。

14.  當時生效的建築物條例是《1955年建築物條例》，當中第9條規定如下：

Part II　
Control of Building

9.(1)    Except as otherwise provided by this Ordinance, no person shall commence or carry out building works without the consent of the Building Authority in the prescribed form.  Such consent shall not be deemed–

(a)     to confer any title to land; nor

(b)     to act as a waiver of any term in any lease or licence; nor

(c)     to grant any exemption from the provisions of this Ordinance; nor

(d)     to permit any contravention of the Landlord and Tenant Ordinance.

(2)     The Building Authority may refuse his consent to the carrying out of any building works where–

(a)     he has not received–

(i)      notice in writing in the prescribed form;

(ii)     such plans as may be prescribed by regulations; and

(iii)    such other documents and information as may be so prescribed; or

(b)     the prescribed fees in respect of such plans have not been paid:

Provided that where plans are received within twelve months of the coming into operation of this Ordinance the Building Authority may give his consent to the carrying out of building works which conform with the provisions of the Buildings Ordinance.

(3)     In giving his consent to the carrying out of any building works involving the structural use of steel, concrete or timber the Building Authority may, notwithstanding the provisions of any regulations, by order in writing require the building owner, authorized architect and registered contractor to comply with such conditions as he may prescribe concerning–

(a)     maximum loads and stresses;

(b)     tests of materials;

(c)     the use of materials;

(d)     standards of workmanship; and

(e)     qualified supervision.

(4)     The Building Authority may refuse his consent to the carrying out of any building works which would result in a new building until he has received plans in respect of the whole building for such building works as in his opinion are necessary to make such building comply with the standard of structural stability and public health established from time to time by regulations.

15.  比對下《1959年建築物（修訂）條例》第9（1）條的規定較為嚴緊：

9.(1)         Save as otherwise provided, no person shall commence or carry out any building works or street works without having first obtained from the Building Authority–

(a)     his approval in the prescribed form of documents submitted to him in accordance with the regulations; and

(b)     his consent in the prescribed form for the commencement of the building works or street works shown in the approved plan.

(2)     Neither the approval of any plans nor the consent to the commencement of any building works or street works shall be deemed–

(a)    to confer any title to land;

(b)     to act as a waiver of any tem in any lease or licence; or

(c)     to grant any exemption from or to permit any contravention of any of the provisions of this Ordinance or of any other enactment.

16.  雖然在1955年的法例下，任何人士均須先獲得建築事務監督的批准才可展開建築工程，監督亦可以在沒有收到按規例所規定的圖則之情況下拒絕同意工程的進行，但按第9(1) 條的字面來說，監督就展開工程的批准不一定是局限於經批准的圖則所顯示的工程。在這方面1959年修訂後的法例在第9(1)(b) 條下加添了這方面的限制。

17.  在審裁小組的聆訊，代表監督的律師指出《1955年建築物條例》第9條和《1959年建築物（修訂）條例》第9條均有同一意向，就是建築圖則須先獲監督批准，才能展開建築工程。審裁小組接納這個論點。

18.  雖然申請人持相反意見，本席不認為這個結論有甚麼錯誤。除了《1955年建築物條例》的主體法例外，在這幢建築物建築時，適用的法律包括在該主體法例下訂立的規則。其中一套規則為Building (Administration) Regulations 1956, 在該Regulations 底下Part IV 對於工程展開前向監督呈交圖則的要求有詳細的規定。其中規則的16及22至25條之條文如下:

16. (1)        Except as otherwise provided or exempted by the Building Authority, plans shall be submitted in triplicate in respect of every proposed building work to show clearly–

(a)     a plan of every floor and roof of the  building, on which shall be indicated full dimensions, thickness of walls, the positions of all windows, water-closets, urinals, water­-storage tanks, baths. wash-basins, sinks and other sani­tary fittings and the intended uses of the several parts of the building;

(b)     all elevations of the building;

(c)     one or more sections to indicate the foundations, the levels of the site and the lowest floor of the building, the height of the building, the clear height of every storey, the positions of windows and the floor and roof levels of any adjoining or adjacent building.

(d)     the levels of adjacent streets in relation to a known datum and to the levels of the site and the building;

(e)     the width of any streets adjacent to the site;

(f)     a foundation plan, showing sizes and positions of foundations;

(g)     a drainage plan to indicate sizes and depths of drains, connexions to a Government sewer, stormwater drain, or nullah or other method of the disposal of drainage, the positions of disconnecting traps and the means of ventilation;

(h)    a block plan, indicating the size and position of the building, other buildings and premises in the immediate vicinity and neighbouring streets;

(i)     a key plan showing the position of the site when such site is not sufficiently identifiable from the block plan;

(j)     the position, depth and construction of any well;

(k)    by means of a diagrammatic plan with full dimensions and calculations –

(i)      the height, volume and disposition of such building in accordance with the provisions of regulations 17, 18, 19 and 20 of the Building (Planning) Regulations;

(ii)     any open space required for such building in accordance with the provisions of regulations 22, 23, and 24 of the Building (Planning) Regulations.

(2)(a)   Plans showing structural details shall be submitted in duplicate together with one set of full calculations including stress diagrams where necessary for any –

(i)      building works involving the structural use of steel or the structural use of reinforced concrete,

(ii)     retaining wall constructed of masonry or brick-work, and

(iii)    other structure designed by calculation under any Code of Practice or London County Council By-laws permitted under these regulations.

(b)   A certificate in the prescribed form completed and signed by the authorized architect shall also be submitted for any building works involving the structural use of steel or the structural use of reinforced concrete.

(3)     In the case of any balcony, canopy, bridge or other similar projection over a street or unleased Crown land, one set of plans shall be submitted indicating clearly the nature and dimension of such projection.

(4)     The Building Authority may also require additional plans, enlarged details, documents, information regarding water supply, specifications and use of any special materials and any other particulars which he may deem relevant to the proposed building work.

22.(1)     When he is satisfied that any plans, which are submitted to him, comply with the provisions of the Ordinance and of any regulations, the Building Authority shall issue a permit in the prescribed form authorizing the commencement and execution of any building works shown on such plans.  Such a permit shall not be taken as an acknowledgment that such plans comply with lease conditions or with the requirements of any other authority.

(2)       When issuing such a permit the Building Authority shall officially stamp, sign, date and return to the authorized architect–

(a)     two sets of plans where such plans have been submitted in triplicate,

(b)     one set of plans where such plans have been submitted in duplicate.

23.(1)   An officially stamped, signed and dated copy of every plan approved by the Building Authority shall be supplied by the authorized architect who has been engaged to supervise any building works, to the registered contractor employed on such works as provided in paragraph (2) of regulation 7.

(2)     It shall be the duty of such contractor to keep every such plan available on such works as provided in paragraph (2) of regulation 12 for inspection by the Building Authority or any officer deputed by him.

24.       Subsequent to the approval of any plans, the Building Authority shall be notified in writing –

(a)     by a building owner before the commencement of any building works as required by paragraph (I) of regulation 3 and paragraph (I) of regulation 9;

(b)     by an authorized architect –

(i)      within seven days of the commencement of any building works shown on such plans as required by sub-paragraph (a) of paragraph (4) of regulation 7;

(ii)     within fourteen days of the completion of any building works shown on such plans as required by sub-paragraph (a) of paragraph (7) of regulation 7;

(iii)    on completion of any drainage works in accordance with the provisions of regulations 31 and 32 of the Drainage (General, Water Closets and Urinals etc.) Regulations;

(c)     by a registered contractor before the commencement of any building works as required by paragraph (I) of regulation 12.

25.       In any case in which several alterations are made in the original design of a building, for which amended plans have been submitted, the Building Authority may require a complete set of new plans showing the building as it has been completed.

19.  就涉案大廈的建成，發展商及當時負責的建築師曾經向監督呈交建築物的圖則，監督亦分別於1957年8月3日，1957年9月25日及1958年11月11日批准這些圖則。清拆令所針對的建築工程並沒有顯示在這些圖則內。

20.  申請人聲稱這些露台的工程是在建築施工期間以修改工程的形式獲監督批准，而根據當時監督的做法這些修改工程並不一定要向監督呈交圖則。在1955年的法例前，雙關的建築條例為1935 年之條例。該條例的第6條就監督批准圖則及建築工程的展開之相關條文如下：

6. (1) It shall not be lawful to commence any building works without the consent of the Building Authority and the following procedure shall be adopted:-

(a)     Notice in writing in or according to the form contained in Schedule A of the intention to commence any building works shall be given to the Building Authority by leaving the same at his office.  Every such notice shall clearly state the locality of the intended building works and the number and section or sub-section of the lot on which it is intended to build and shall state any special or material particulars in connection with the same which it is not possible to denote on the plans.  Such notice shall also state the name and address of the owner and occupier of the building or lot and shall be signed by such owner or occupier or by the duly authorised agent of such owner or occupier.

(b)     Proper plans of such building works signed by an authorised architect showing the position, form, description and dimensions of all portions thereof shall be submitted to the Building Authority with the aforesaid notice for his approval.  If repairs, alterations or additions are intended to be made to any existing building they shall be clearly differentiated on the plan from the existing work intended to be left intact or utilised in carrying out such repairs, alterations or additions; and if the Building Authority shall consider it necessary so to do he may require further plans to be submitted of other portions of the existing building and of any adjoining buildings.  Unless dispensed with by the Building Authority the details of any drainage to be constructed shall be shown on the plan.  Every plan shall be drawn on tracing linen or other material approved by the Building Authority, to a scale of not less than one-tenth of an inch to the foot, and shall contain enlarged details with figured dimensions of the principal features of construction and shall also show the position and levels of the surrounding ground and buildings.  In cases where several alterations are made in the original design during the carrying on of work involving the submission of amended plans, the Building Authority may require the submission of a complete set of new plans shewing the building as completed.  In the case of minor alterations or repairs the Building Authority may dispense with the submission of plans by an authorised architect.

21.  該條例第6(1)(b)最後的一句似乎顯示在1935年的法例下，就“minor alterations or repairs”，監督是可以豁免圖則的呈交。

22.  但在1955年修例後，新的法例沒有同樣的條文。上文提及的Buildings (Administration) Regulations 之第25條提及關於修改工程的修改圖則。至於監督可否就較小型的修改豁免圖則的呈交，1955 年的條例及1956年的規則均沒有明文規定。

23.  證據顯示在這幢大廈興建時，監督曾經派員多次檢查工程的進度。就有關露台的建造，若事實上他們是在整幢大廈興建時一同建造的話，按照監督的紀錄卡（index card），監督的職員應該在1958年11月25日，12月4日及1959年1月6日，2月4日及3月12日的巡查過程中留意到露台的建設。在整幢大廈的工程完成後，監督的職員亦再次在1959年4月3日驗樓，驗樓滿意後才發出有關的入伙紙。

24.  監督向法庭呈交了當時的驗樓報告。按照該報告監督的職員其中一項檢查的事項為有關建築物是否按照獲批的圖則建成。監督的職員在該報告內記錄樓宇是按批准圖則建成。

25.  關於入伙紙的規定，《1955年的建築物條例》第12條的條文如下：

12.(1)         No new building shall be occupied in any way, except by not more than two caretakers, until the Building Authority issues a permit in the prescribed form.

(2)     Upon the expiration of fourteen days from the date of the receipt by the Building Authority of the certificate of completion given by an authorized architect under subsection (3) of section 4, such permit shall be deemed to have been granted, unless by registered post or in other sufficient manner the Building Authority has notified the building owner that the building works have not been carried out in accordance with the provisions of this Ordinance.

26.  從上述條文可見，若監督在工程完成後的驗樓中發現有關工程在任何一方面沒有按照法例規定而進行，監督必須拒絕發予入伙紙及以書面通知業主。

27.  如前述，就涉案的大廈，監督於1959年4月6日發出入伙紙。若涉案的露台是在大廈興建時同時建成，監督在驗樓後所發出的入伙紙可被視為監督承認這些露台為合法建築的證據。縱使在現存的檔案之文件裏找不到關於這些露台的書面批准或相關的圖則，本席認為鑑於監督是在驗樓後才發出有關的入伙紙及入伙紙在法例下意義，監督可被視為在行為上批准了這些露台的建築。

28.  審裁小組在他們的判決第17段認為核准圖則的終訂本須作為監督的最後參考文件，以執行條例條文。雖然本席同意《1955 年建築物條例》與《1959年建築物（修訂）條例》都顯示建築圖則獲監督批准後才展開建築工程的程序，但這不代表監督就批准建築工程展開的實際運作在1955年的法例下與1959年的法例下是完全相同。本席在上文經已指出在1959年法例下，監督批准工程展開的權限是受到較嚴緊的約束，在沒有批准圖則之情況下監督沒有權力批准工程展開。但是在1955年法例下，監督在這方面的權力並不受此約制。

29.  所以雖然一般來說，本席同意核准圖則是監督作為執行條例條文之主要參考文件，在1955年法例下獲批展開工程的建築物，若有其他證據顯示相關的工程是在有關大廈興建時同時建成並且在入伙紙發出前經已存在及應該在驗樓時被監督察覺，審裁小組應該考慮監督發出入伙紙會否等同在行為上批准有關工程，因此該等工程不能被視為在違反建築物條例的條文下建成。

30.  申請人並且引用合理期望的法律原則要求推翻有關的清拆令。審裁小組認為有關原則並不適用，因為現行的建築物條例第24 條沒有限制有關條文不適用於1959年前興建或建成的建築物，申請人沒有合理期望監督不會執行法例內第24條。審裁小組並且認為申請人的期望既不合理也不合法。

31.  審裁小組在判決內並沒有詳細分析上訴人合理期望的理據。按本席理解，上訴人的合理期望是基於下列的事實基礎：

(a)     涉案露台是在大廈建築時同時興建；

(b)    在建築期間監督多番檢驗建築的過程，並留意到涉案露台的建設；

(c)     在大廈完成後，監督再次驗樓，而當時涉案之露台亦經已存在；

(d)    在建築過程中及在發出入伙紙之前，監督有責任停止未獲批准之工程繼續進行及基於涉案露台不屬批准工程而拒絕發出入伙紙；

(e)     在這些情況下雖然涉案工程並不顯示在批准圖則內，監督仍然按照《1955 年建築物條例》第12條發出入伙紙。

32.  在這些情況下，本席同意申請人有强力的理據依賴入伙紙的發出為監督的宣布或陳述，表示涉案露台是在獲得監督批准的情況下展開之工程，因此並不應被視為屬於違反法例的情況下之建築物。按此分析，實現這合理期望並沒有違反法例的第24條。

33.  基於上述理由，本席認為審裁小組不應在沒有裁斷到底涉案露台是否在有關大廈興建同時建成之事實真相便否決申請人的上訴。審裁小組的判決因此犯了法律上的錯誤。

34.  因此本席現頒令撤銷審裁小組的決定，並命令案件發還建築物上訴審裁小組由重新組合的小組召開全面聆訊。

35.  本席同時頒發暫准令，命令第二答辯人支付申請人在本案中之訟費，若雙方就訟費不能達成協議由法庭釐定。