|
| 阅读上一个主题 :: 阅读下一个主题 |
| 作者 |
 致特首董建华暨立法局全体议员的公开信： |
 |
国情研究室
[博客]
[个人文集]
游客
|
|
|
作者：Anonymous 在 罕见奇谈 发贴, 来自 http://www.hjclub.org
致特首董建华暨立法局全体议员的公开信：
呼吁尽快改变承租人优先权遭褫夺之不合理现实！
在当今社会，法制昌明、人权至上的观念早已深入人心。在世界上绝大多数国家和地区，绝大多数的公共和私人住宅单位的承租人（租客）享有优先权：--- 当业主希望出售其出租的单位时，享有优先购买权。业主在向第三者出售该住宅单位之前，在同等条件和价格下，必须先给予正在租用该单位的租客购买此住宅单位的机会。这就是“租客优先购买权”Tenant's Right of First Refusal or Tenant's Right of Pre-emption。
优先权( Right of Pre-emption or Right of First Refusal ) 渊远流长，在商业、服务业、就业市场以及财产（货物、货币、股票、不动产）转让与买卖中得到广泛认同和流行。在英国的《破产法案1986》Insolvency Act 1986, s 436中，优先权A right of pre-emption 也是一种“财产”property。
“property" includes money, goods, things in action, land and every description of property wherever situated and also obligations and every description of interest, whether present or future or vested or contingent, arising out of, or incidental to, property.”
早在1845年，北爱尔兰的立法机构制定的土地条例就清楚界定了优先权的适用范围：
Northern Irish Legislation
LANDS CLAUSES CONSOLIDATION ACT 1845
Right of pre-emption to be claimed within six weeks from offer.
129. If any such persons be desirous of purchasing such lands, then within six weeks after such offer of sale they shall signify their desire in that behalf to the promoters of the undertaking; or if they decline such offer, or if for six weeks they neglect to signify their desire to purchase such lands, the right of pre-emption of every such person so declining or neglecting in respect of the lands included in such offer shall cease; and a declaration in writing made before a justice by some person not interested in the matter in question, stating that such offer was made, and was refused, or not accepted within six weeks from the time of making the same, or that the person or all the persons entitled to the right of pre-emption were out of the country, or could not after diligent inquiry be found, or were not capable of entering into a contract for the purchase of such lands, shall in all courts be sufficient evidence of the facts therein stated.
英国于1987年将优先权正式以法案的形式授予承租人（租客），参见《业主与租客法案1987》第一部， Landlord and Tenant Act 1987 Part I 。随后在1996年10月1日，英国再次推出《房屋法案1996》Housing Act 1996，对《业主与租客法案1987》加以修订，重申并强化了租客优先权Tenant’s Right of Pre-emption or Right of First Refusal 的强制性法律地位。业主如果不遵从相关的法律规定即属刑事犯罪criminal offence，可被处以罚款5,000英磅。相关条款引述如下：
Housing Act 1996
1996 Chapter 52
PART III LANDLORD AND TENANT CHAPTER I TENANTS' RIGHTS
Right of first refusal
Application of right of first refusal in relation to contracts.
89. - (1) After section 4 of the Landlord and Tenant Act 1987 (relevant disposals) insert-
"Application of provisions to contracts.
4A. - (1) The provisions of this Part apply to a contract to create or transfer an estate or interest in land, whether conditional or unconditional and whether or not enforceable by specific performance, as they apply in relation to a disposal consisting of the creation or transfer of such an estate or interest.
As they so apply-
(a) references to a disposal of any description shall be construed as references to a contract to make such a disposal;
(b) references to making a disposal of any description shall be construed as references to entering into a contract to make such a disposal; and
(c) references to the transferee under the disposal shall be construed as references to the other party to the contract and include a reference to any other person to whom an estate or interest is to be granted or transferred in pursuance of the contract.
(2) The provisions of this Part apply to an assignment of rights under such a contract as is mentioned in subsection (1) as they apply in relation to a disposal consisting of the transfer of an estate or interest in land.
As they so apply-
(a) references to a disposal of any description shall be construed as references to an assignment of rights under a contract to make such a disposal;
(b) references to making a disposal of any description shall be construed as references to making an assignment of rights under a contract to make such a disposal;
(c) references to the landlord shall be construed as references to the assignor; and
(d) references to the transferee under the disposal shall be construed as references to the assignee of such rights.
(3) The provisions of this Part apply to a contract to make such an assignment as is mentioned in subsection (2) as they apply (in accordance with subsection (1)) to a contract to create or transfer an estate or interest in land.
(4) Nothing in this section affects the operation of the provisions of this Part relating to options or rights of pre-emption.".
-(2) In section 4(2) of the Landlord and Tenant Act 1987 (relevant disposals: excluded disposals), for paragraph (i) (certain disposals in pursuance of existing obligations) substitute-
"(i) a disposal in pursuance of a contract, option or right of pre-emption binding on the landlord (except as provided by section 8D (application of sections 11 to 17 to disposal in pursuance of option or right of pre-emption));".
-(3) In section 20(1) (interpretation), in the definition of "disposal" for "has the meaning given by section 4(3)" substitute "shall be construed in accordance with section 4(3) and section 4A (application of provisions to contracts)".
Notice required to be given by landlord making disposal.
90. - (1) In section 4(2) of the Landlord and Tenant Act 1987 (disposals which are not relevant disposals for the purposes of Part I of that Act), for paragraph (l) substitute-
"(l) a disposal by a body corporate to a company which has been an associated company of that body for at least two years.".
(2) The above amendment does not apply to a disposal made in pursuance of an obligation entered into before the commencement of this section.
Offence of failure to comply with requirements of Part I.
91. - (1) After section 10 of the Landlord and Tenant Act 1987 insert-
"Offence of failure to comply with requirements of Part I. 10A. - (1) A landlord commits an offence if, without reasonable excuse, he makes a relevant disposal affecting premises to which this Part applies-
(a) without having first complied with the requirements of section 5 as regards the service of notices on the qualifying tenants of flats contained in the premises, or
(b) in contravention of any prohibition or restriction imposed by sections 6 to 10.
(2) A person guilty of an offence under this section is liable on summary conviction to a fine not exceeding level 5 on the standard scale.
(3) Where an offence under this section committed by a body corporate is proved-
(a) to have been committed with the consent or connivance of a director, manager, secretary or other similar officer of the body corporate, or a person purporting to act in such a capacity, or
(b) to be due to any neglect on the part of such an officer or person,
he, as well as the body corporate, is guilty of the offence and liable to be proceeded against and punished accordingly.
Where the affairs of a body corporate are managed by its members, the above provision applies in
relation to the acts and defaults of a member in connection with his functions of management as if he were a director of the body corporate.
(4) Proceedings for an offence under this section may be brought by a local housing authority (within the meaning of section 1 of the Housing Act 1985).
(5) Nothing in this section affects the validity of the disposal.".
-(2) The above amendment does not apply to a disposal made in pursuance of an obligation entered into before the commencement of this section.
Procedure for exercise of rights of first refusal.
92. - (1) Part I of the Landlord and Tenant Act 1987 (tenants' rights of first refusal) is amended in accordance with Schedule 6.
-(2) The amendments restate the principal provisions of that Part so as to-
(a) simplify the procedures for the exercise of the rights conferred on tenants, and
(b) apply those procedures in relation to contracts and certain special cases.
-(3) In Schedule 6-
Part I sets out provisions replacing sections 5 to 10 of the Act (rights of first refusal),
Part II sets out provisions replacing sections 11 to 15 of the Act (enforcement by tenants of rights against purchaser),
Part III sets out provisions replacing sections 16 and 17 of the Act (enforcement of rights against subsequent purchasers and termination of rights), and
Part IV contains consequential amendments.
Duty of new landlord to inform tenant of rights.
93. - (1) In the Landlord and Tenant Act 1985, after section 3 (duty to inform tenant of assignment of landlord's interest) insert-
"Duty to inform tenant of possible right to acquire landlord's interest.
3A. - (1) Where a new landlord is required by section 3(1) to give notice to a tenant of an assignment to him, then if-
(a) the tenant is a qualifying tenant within the meaning of Part I of the Landlord and Tenant Act 1987 (tenants' rights of first refusal), and
(b) the assignment was a relevant disposal within the meaning of that Part affecting premises to which at the time of the disposal that Part applied,
the landlord shall give also notice in writing to the tenant to the following effect.
-(2) The notice shall state-
(a) that the disposal to the landlord was one to which Part I of the Landlord and Tenant Act 1987 applied;
(b) that the tenant (together with other qualifying tenants) may have the right under that Part-
(i) to obtain information about the disposal, and
(ii) to acquire the landlord's interest in the whole or part of the premises in which the tenant's flat is situated; and
(c) the time within which any such right must be exercised, and the fact that the time would run from the date of receipt of notice under this section by the requisite majority of qualifying tenants (within the meaning of that Part).
-(3) A person who is required to give notice under this section and who fails, without reasonable excuse, to do so within the time allowed for giving notice under section 3(1) commits a summary offence and is liable on conviction to a fine not exceeding level 4 on the standard scale.".
- (2) In section 32(1) of the Landlord and Tenant Act 1985 (provisions not applying to tenancies within Part II of the Landlord and Tenant Act 1954), for "sections 1 to 3" substitute "sections 1 to 3A".
General legal advice
Provision of general legal advice about residential tenancies.
94. - (1) The Secretary of State may give financial assistance to any person in relation to the provision by that person of general advice about-
(a) any aspect of the law of landlord and tenant, so far as relating to residential tenancies, or
(b) Chapter IV of Part I of the Leasehold Reform, Housing and Urban Development Act 1993 (estate management schemes in connection with enfranchisement).
(2) Financial assistance under this section may be given in such form and on such terms as the Secretary of State considers appropriate.
(3) The terms on which financial assistance under this section may be given may, in particular, include provision as to the circumstances in which the assistance must be repaid or otherwise made good to the Secretary of State and the manner in which that is to be done.
Supplementary
Jurisdiction of county courts.
95. - (1) Any jurisdiction expressed by a provision to which this section applies to be conferred on the court shall be exercised by a county court.
- (2) There shall also be brought in a county court any proceedings for determining any question arising under or by virtue of any provision to which this section applies.
- (3) Where, however, other proceedings are properly brought in the High Court, that court has jurisdiction to hear and determine proceedings to which subsection (1) or (2) applies which are joined with those proceedings.
- (4) Where proceedings are brought in a county court by virtue of subsection (1) or (2), that court has jurisdiction to hear and determine other proceedings joined with those proceedings despite the fact that they would otherwise be outside its jurisdiction.
- (5) The provisions to which this section applies are-
(a) section 81 (restriction on termination of tenancy for failure to pay service charge), and
(b) section 84 (right to appoint surveyor to advise on matters relating to service charges) and Schedul. 从略…….
与此同时，法国Law of 31st December 1975, Law of 6th July 1989、美国Tenant's Right of First Refusal to Purchase Single-Family Dwelling (Baltimore City Code, Article 13, Subtitle 6)；MISSISSIPPI CODE OF 1972、加拿大 Tenant Protection Act 1997、澳洲、中国、爱沙尼亚、立陶宛、菲律宾等等世界上绝大多数国家（未能尽录）也都制订了各自内容相似的法律来管理和规范物业市场的运作。唯一的例外就是一向以法制与人权至上而自诩的香港。
根据中华人民共和国合同法第十三章租赁合同第二百三十条：
出租人出卖租赁房屋的，应当在出卖之前的合理期限内通知承租人，承租人享有以同等条件优先购买的权利。
根据中华人民共和国《城市私有房屋管理條例》第11條和最高法院《關于貫徹執行民法通則若干問題的意見》第118條規定，出租人出賣出租房屋，應提前3個月通知承租人，在同等條件下，承租人享有优先購買權。出租人未履行通知義務而出賣房屋的，承租人可以請求法院宣告該房屋買賣無效。因此，出租人應當在賣房之前的3個月內通知承租人，以便承租人有充分的時間考慮是否行使优先購買權和准備价款。如果承租人經3個月的考慮仍不答复或表示不愿購買時，出租人即有權將出租房賣給他人。
香港私人住宅市场中的租客相对于业主来说是毫无权益保障与平等地位的。业主可以不受任何限制地不须知会租客而将已出租给租客的房屋随时出卖给任何第三者---所谓之连租约带租客一同出售。这完全不符合世间万物皆对立而又统一相处的规律。和约双方本是相互独立对等的客体，因各自所需而平等缔约，各自应在尊重对方权益的基础上受到合同的约束。然而香港的租客在现有相关法律条文管制下就如同附属于业主的仆从，招之即来，挥之即去。完全没有平等条件下维护自己合法权益的议价权利。租客在此情形下必须承担各种风险：比如今天向此业主缴租，明天就可能被迫向另一毫不相关的人缴租，哪怕新的业主要破产，要将房屋抵押，要违反原业主对租客的口头长期出租的承诺（因为香港的私人住宅租约通常为二年，法律规定超过三年的租约必须注册并纳税，因此业主不愿一次性给予长租，而是每二年一续），要收回单位自住或给家庭其他人员居住等等。总之租客是砧板上的肉，想怎么切就怎么切。租客没有讨价还价的余地！
按理1997年7月1日香港回归中国之前，英国的法律自动适用于香港。香港回归中国之后，除与基本法相抵触的法律之外，原有法律继续适用于香港。为什么英国的《业主与租客法案1987》和《房屋法案1996》多年来没有在香港实施？甚至中国的相关法律也不能在香港实施？香港凭什么二者皆不取？虽然香港的司法独立，但终究不是主权独立的国家，因此香港的立法机构不能特立独行，不能在原宗主国和现归属国都采用相同内涵法律的情况下长期抵触或对该法律不作为---维持立法滞后的不合理现状。
看来造成承租人优先权在香港遭到褫夺的原因在于香港的立法局议员们没有及时根据英国早已生效的法律制定香港自己的法律。这也许是香港立法局在两种制度交接时期特有的泛政治化的“忙碌”而导致的“忽略”或不作为？一切要等回归之后再说？
如果说香港的立法局有权制定适合香港的法律而不必随时跟从英国制定的成文法律，即便在97年回归之前亦是如此。那么就请立法局诸议员们环顾一下世界各国，还有哪些国家和地区没有就租客优先权立法，对租客的权益给予最大限度的保护？英国1987年已经立法对租客优先权给予强制性保护，十几年过去了！请你们尽快行动起来，赶快制定香港自己的相关法律。
实际情况是，虽然香港法律在租客优先权的空白无力使广大私人住宅市场的租客被褫夺了本应该享受的优先权；但与此同时，在商业楼宇的租赁市场，大公司的律师和职业炒楼行家们却懂得如何应用优先权Right of Pre-emption来保护自己或投机炒作。律师们的精明是有回报的，他们知道英国和世界上众多国家早已实施了租客优先权的法律。他们知道香港没有实施此法律不等于香港的法庭不承认此全世界都公认的法律。他们知道在合同中加入优先权条款来保护自己和他们的客户。当然也有相当一些大律师孤陋寡闻，因为立法机构的不作为和自己的嗅觉不够灵敏而让他们的客户吃了大亏。不妨回想一下香港的房地产泡沫是如何产生的？立法机构对租客优先权的不作为难道没有助长香港房地产的炽热炒风?难道没有对香港楼市的泡沫起到推波助澜的作用？如下案例就是写照：
FILA MARKETING (HONG KONG) LTD. v. FAITHFUL PROPERTIES LTD. AND ANOTHER HCCL000066/1997 - [1999] HKCFI 692 (9 July 1999)
Court of First Instance of Hong Kong
此案以及其他在香港发生的涉及租客优先权的诉讼在香港法庭上诉得直说明香港的法庭和大法官只管判案是否最大限度合理，而不理会香港的立法是否跟上时代的发展步伐。纵然香港没有此成文法律，此法律精神仍然可以在香港得到伸张。这说明香港的立法确实已严重落后于社会的发展。现在是时候亡羊补牢了！
有人可能会说，既然律师们懂得运用优先权，而法官们又自然会伸张正义，那还担心什么?管那么多闲事干嘛? 那就不需要香港自行立法保障租客了。非也！广大市民的利益是至上的，租客绝大多数是工薪阶层，是社会中弱势群体的一员，他们租房子时请不起律师，他们与业主签署从街上文具店买来的格式化租约--最为简单的对业主权利最大维护但对租客权益毫无保障的租约。这是香港法律滞后的必然结果。如果没有强制性法律的保障，广大租客的权利就势必因为种种原因--租客大多不懂法律或英文、轻信业主的承诺、没有特别加入优先权条款于格式化租约、不能独自撰写全面保障权益的租约，而得不到应有的保障。因此，香港必须尽快就租客优先权明文立法，强制保护所有的租客，无论他的租约是否加入优先权条款与否。就象英国和中国以及大多数国家和地区一样。在保障人权方面，香港没有理由继续成为一个例外。
必须指出的是，香港在公共房屋政策上是基本与英国同步实施租客优先购买权的。在回归前后公屋租户就可以按比市价更优惠的条件买入自己租住的公屋。这一合理的政策深得民心！相信这一政策是源于英国的Landlord and Tenant Act 1987以及 Housing Act 1996。 虽然香港政府目前不是以制定成文法的形式加以实施，而是以行政为主导的房屋政策加以实施；但这样做不等于私人住宅租客就不应享受此正当权益；不等于香港政府和立法局对关系基本人权保障的政策可以不立法、不作为；不等于香港政府可以对市民长期实施双重标准。
需要站出来呼吁政府和立法局议员正视的是另一更为尴尬羞愧的局面：香港立法局议员们以及政府相关部门的衮衮诸公不但没有感觉到应该及时对行之有效的现行公屋政策立法，给予私人住宅和商业楼宇租客以公屋租客同样的保障，反而为了匪夷所思的所谓对付“恶租客”以及“帮扶业主等于帮扶香港楼市复苏”的心态，而对私人住宅租客加以更为苛刻的限制。香港立法局史无前例地正在对《业主与租客综合条例》进行影响深远而结果必将是臭名昭著的不必要的修改（目前已经二读通过了简化和缩短业主向租客收楼的程序和时间草案），来削弱私人住宅租客现有的权益和保障。这里特别提请注意：“恶租客”字眼带有强烈的歧视倾向！有“一竹篙打死一船人”之嫌！是对广大租客的不公平与人格侮辱！请问各位议员，业主之中难道没有“恶人”，难道可以因为个别“恶业主”而特别修改法律以针对全部业主吗？我们认为业主和租客的正当权益同样重要，同样必须得到保护！但保护业主的权益绝不能建立在削减租客正当权益的基础之上！业主追租的困难、物业损毁的赔偿等等应该另立新的法律来解决！而不是通过削减租客现有的合法权益来解决。香港现行的《业主与租客综合条例》是英国乃至全世界标榜法制和人权的国家奉行多年且行之有效的法律。在此基础上各国无不是小心翼翼地不断强化充实和完善对业主和租客双方的保障，鲜有单独针对租客权益反其道而行地苛刻限制与削减弱化！作为以争取和捍卫工薪阶层权益为宗旨，在香港合法注册的政党，香港工党在此义无返顾地挺身而出，对立法局如此不合适宜地对《业主与租客综合条例》进行负面修改表示强烈不满与极大愤慨！并在此向特首董建华与立法局各位议员大声疾呼：香港工党坚决反对任何旨在削弱租客现有法定权益的任何立法！香港工党强烈要求将租客优先权写入《业主与租客综合条例》！香港工党强烈抗议香港政府和立法机构对处于弱势社群的私人住宅租客奉行双重标准和歧视政策！这是香港政府所签署的人权公约所不容许的！是完全没有道理的！应该立即加以纠正！
香港政府和立法机构为什么对公屋租客与私人住宅和商业租客奉行双重标准而厚此薄彼？是因为普通法精神不主张对私人财产的转让加以“过多”的限制？这是站不住脚的理由。租客优先权并没有阻止业主转让其涉及土地利益的业权，而是对该业权的转让附加合理的对受影响一方（租客）的合法权益的保障，当业主希望出售正在出租的楼宇时，该租客的优先权益（同样涉及土地利益）就此产生。租客优先购买权的效力只是“冷静”业权的转让，使之更加合理---同时保障业主与租客作为平等对立的个体之间的平衡与均等的权利，而不是仅仅保障业主单方面的权利。这符合缔约双方的权利平等利益均衡，符合平衡法以及尊重人权的基本原则。当然这样对业主出售其业权的时效有影响。业主不能随心所欲地随时出售其业权。在香港楼市高峰期，炒风炽热，当物业买卖随时可以转手获利时，如果每次转手都要先经过租客考虑是否行使优先购买权或放弃该权利，这样确实是“过多”限制了业主。但不这样做就是损害租客权益同时纵容业主滥用权利。正是这种对业主的“纵容”和对租客的“残忍”对香港楼市的炒风起到推波助澜的作用，造成香港楼市的巨大泡沫，使到更多的本来可以置身事外的业主在房地产泡沫爆炸时不幸成为负资产一族，造成香港地产市场沉疴难起，经济转型步履唯艰……
以损害租客的合法权益为代价而纵容业主随心所欲转让物业并不利于香港楼市的健康发展。历史的经验和教训就是明证。为香港经济从以房地产为基础的曲纽状态转型为健康发展的长远大局着想，本党在此呼吁：请各位议员尽快行动起来，纠正对私人住宅租客的不公平对待，还给他们应有之正当权益的法律保障。
敬请特首董建华以及立法局各位议员认真考虑此建议和呼吁,尽快采取行动!
此致
颂祺！
香港工党
REF.CP/LIC/SO/19/26019
2003年9月19日
E-mail address: [email protected]
作者：Anonymous 在 罕见奇谈 发贴, 来自 http://www.hjclub.org |
|
|
| 返回顶端 |
|
 |
| |
|
|
您不能在本论坛发表新主题
您不能在本论坛回复主题
您不能在本论坛编辑自己的文章
您不能在本论坛删除自己的文章
您不能在本论坛发表投票
您不能在这个论坛添加附件
您不能在这个论坛下载文件
|
based on phpbb, All rights reserved.
|
