建築物修繕法律定位與管理制度之研究

Abstract

根據內政部營建署調查1980-1990年間台灣地區之建築執照申請數量比率已降至3％，既有建築物高達97％，顯示新建行為已遠低於既有建築物之使用修繕。21世紀初始，「建築永續發展」成為各國建築管理政策追求之核心目標，觀察台灣建築管理制度，現階段正面臨建築物用後修繕課題，必須務實檢討及早建立完善法理機制。此為本研究之動機。 台灣過去有關建築物用後修繕課題之期刊或論文研究，對於法律面與制度面之探討文獻極為稀少，管理規範或技術準則亦頗缺乏，以致建築物修繕管理始終未能步上常軌。本研究為釐清修繕法律定位，建立制度合理規範專業權責，乃透過文獻資料、法令研析、統計資料、實例分析、類比分析法，並側重法令定性之研究解析。研究內容主要包括：（一）台灣建築使用管理制度之沿革與檢討；（二）我國與外國有關「修繕」制度建立經驗之探討比較；（三）現階段「修繕」法律與實務課題之探討；（四）建築物用後修繕類型與成效分析；（五）修繕法律定位與管理制度建立之芻議。 從現有建築物使用管理文獻及制度發展之研究，確立了本研究之原創性－在於探討台灣違章建築叢生的法律死角，並建立建築物用後修繕的法理秩序。台灣現行建築法僅規範「建造行為」需申請建築許可，當免申請許可之行為加諸建築物之室內外空間或構造上，在造成「公共安全之虞」後，政府方始介入管理，這無疑係制度設計上一大盲點。本研究認為應進一步積極以修繕行為延長建物壽命，提昇使用機能、促進建築物環保和外觀美化為目的，研擬具體可行修繕機制規範。同時，立基於「建築法」為「建築物管理行政」法理依據，「公寓大廈管理條例」為「建築物管理維護」處分依據之論點，對於建築物之「修繕」定義建構法律關係，明確定義有效規範。亦即建築修繕行為係施作於建築物，其有關管理程序、權責認定與規範標準，應與現行建管制度合理比擬、有效連結。 台灣地區目前可列管之修繕行為，依據法令及政策目的，本研究將其概分為自主性修繕、強制性修繕與獎勵性修繕三類，就其許可程序、權責分工等比較分析，從中探討現行管理缺失與課題。另修繕數量保守估計每年達23.5萬件，如能有效管理則每一已開業建築師將近75件，每一室內裝修業者將近有17件。然目前除室內裝修業務已經有制度可管理並規範，其他修繕行為確尚未建立制度管理，使相關專業難以投入而無法達到強制或獎勵之目標，亦影響建築修繕產業之正常發展，及修繕工程品質之確保。 本研究根據以上法令制度檢討比較、實務執行成效分析與法理之衍繹。提出下列重要結論與建議： 一、為強化修繕行為在建築使用管理階段政策使命，劃分修繕行為與建造行為之關係、確立修繕行為在法律之定位，本研究認為修繕行為應參照室內裝修於建築法中明定管理法源及要項。 二、建立修繕管理制度之要項包括：（一）明確定義修繕行為，應以建築法建造行為以外之建築物構造、設備及其基地範圍之修理、變更或改善為管理範圍；強制性或獎勵性之修繕行為，則以政策或法令強制達成之應有目的概括認定。（二）採取許可制度：為杜絕修繕行為不申請許可，形成事後違章建築，應比照室內裝修規定另訂辦法據以辦理。但強制性及獎勵性修繕得採簽證、代審或認證，事後報備方式許可。；（三）規範專業認可登記，自主性修繕之設計、規劃、監造及施工應交由建築師或營造業辦理，但一定規模以下修繕行為，得由登記許可之業者辦理。但強制性及獎勵性修繕屬專業範圍者，得另行指定；（四）應因應不同性質修繕行為需要，另訂定彈性管理之辦法。 三、提出未來台灣對於建築物修繕相關法令與產業技術，應積極進行研究之課題，包括：（一）法律層面之修法建議：建築法應增列修繕與建造行為、室內裝修之關係、明訂公共安全檢查改善與變更使用、舊有建物改善之共通程序、第16條應修正弭補建築修繕漏洞、應修正違章建築處理規定，同時公寓大廈管理條例應增列物業管理機制，並對於未來景觀法有關建物修繕執行策略，提具體建議；（二）建築物修繕相關產業技術性課題之研發：研擬「恢復原形貌與維持原性能」之修繕方案：訂定既有建築物修繕技術及查驗規範、訂定標準化規格化修繕材料規範、研訂建築構造設備生命週期保固檢修指導規範。另外，應研訂建築物業管理之契約規範，配合公寓大廈管理服務之多元化，因應建築使用管理資訊化、產業經營結盟化之發展趨勢。 【關鍵詞】建築永續使用、建造行為、修繕、室內裝修、生命週期

According to the survey conducted by the Construction and Planning Agency, Ministry of the Interior, for the period of 1980~1990, the proportion of applications for construction licenses in Taiwan was decreased to 3%, whereas that of the existing buildings was as high as 97%. It revealed that new construction behavior has far exceeded the utility and repair of the existing buildings. In the early 21st century, almost every country in the world aims at pursuing the core target of “sustainable development in construction” when implementing the architectural management policy. In observing the architectural management system of Taiwan, it is found that the existing old buildings are facing the problem of repair. This issue has to be practically reviewed, and a sound legal mechanism should be established as soon as possible. These are the basic motives of this study. In Taiwan, studies published in journals or published dissertations seldom touched upon the issue of the repair of old buildings, not to mention literatures investigating into the legal or system aspects of this issues. What is more, Taiwan even lacks management standards or technical criteria for building repair. As a result, the repair management of buildings still cannot develop in the normal course. In order to clarify the legal positioning of building maintenance and establish a system to reasonably regulate the professional responsibilities , this study firstly reviews the related literatures, and then analyzes the related laws, uses the statistical data, reviews the practical case studies, employs analogical analysis, and lays particular emphasis on qualitative analysis of laws. The contents of this study mainly include: (1) The origin and review of the utility management system of buildings in Taiwan; (2) An investigation and comparison of the experience in establishing the “repair” system between Taiwan and foreign countries; (3) An investigation of the issue of the laws and practices of “repair” at the present stage; (4) Types of repair of old buildings and analysis of the efficacy; and (5) Arguments over the legal positioning of building repair and the establishment of the related management system. From the existing literatures regarding the utility management of buildings and the development of system, the originality of this study is to investigate into the legal dead angles for the successive construction of illegal buildings in Taiwan, and the order for the establishment of repair Law for old buildings. The existing Construction Law of Taiwan only regulates that the “construction behavior” has to apply for construction permit. When the behavior of no construction permit is needed towards the indoor or outdoor area or structure of a building, the government shall then intervene into the management only if it creates “danger to the public safety.” Undoubtedly this is a great blind spot in the design of system. This study thinks that before drafting concrete and workable repair mechanism and standards, the repair behavior should be, in a positive sense, for the purposes of extending the life of buildings, improving the utility functions, facilitating the environmental protection of buildings and strengthening the outlook of the exterior. Meanwhile, the legal principles for the “management administration of buildings” should be based on the “Construction Law,” and the punishment relating to the “repair management of buildings” should refer to the “Management Regulations of Apartments and Buildings.” Regarding the formulation of definition and legal relationship for the “maintenance” of buildings, effective standards should be clearly defined. It also refers that the repair behavior of building shall be practiced and implemented in buildings, and the related management procedures, identification of rights and responsibilities, as well as the regulating standards should be reasonably simulated and effectively connected to the existing construction management system. Based on the laws and order as well as the purposes of policies, this study divides the repair behaviors that can be regulated in Taiwan into three types: autonomous repair, compulsory repair. and incentive repair. In this study, comparative analysis is underwent based on the approval procedures of maintenance behavior and the division of rights and responsibilities so as to investigate into the issue of the existing shortcomings of management. It is conservatively estimated that the number of repair cases is 235,000 per year. If effective management is implemented, each registered architect shall be in charge of almost 75 cases, and each interior decoration company shall handle almost 17 cases. Nevertheless, apart from the interior decoration businesses which are managed and standardized under a system, there is no management system for all other repair behaviors to follow. Relevant expertise can hardly involve in the repair behavior, making it difficult to achieve the goals of compulsory or encouraged maintenance. It also affects the normal development of the building repair industry and the quality of repair projects. After reviews and comparison of the above laws and systems, the efficacy of practical implementation is analyzed and the legal principles are derived, the study proposes the following conclusion and suggestions: 1. In order to strengthen the strategic mission of maintenance behavior at the utility management stage of buildings, this study clarifies the relationship between repair behavior and construction behavior, and fixes the legal positioning of maintenance behavior. This study thinks that repair behavior should based upon the legal origin and the main items of interior decoration management stipulated in the Construction Law. 2. The essentials for the establishment of maintenance management system should include: (1) Clear definition of repair behavior: The management area should cover the reparation, change or improvement of the structure, facilities and base of the buildings other than the construction behavior of Construction Law. Compulsory or encouraged maintenance behavior should be identified by the purposes compulsorily reached in policies or laws. (2) Adoption of approval system: In order to eliminate the evasion of application for the approval of maintenance behavior which is followed by illegal construction of building, additional methods should be established referring to the interior decoration regulations. However, compulsory and encouraged maintenance shall be approved by means of validation, examination or certification after reporting in the later days. (3) Regulating the registration of professional recognition: The design, planning, supervision and construction work of the autonomous maintenance should be handled by architects or construction companies. For the maintenance behavior at a certain scale, it shall be handled by the registered and approved companies. But for compulsory and incentive maintenance of professional area, regulations shall be additionally formulated. (4) Flexible management methods should be additionally formulated to meet the needs of maintenance behavior of different natures. 3. For the future laws and industrial techniques relating to the building repair of Taiwan, it is proposed that the following issues should be positively studied: (1) Suggestion of legal revision in the aspect of law: The Construction Law should be added with the statement regarding the means to relay maintenance with the construction behavior and interior decoration, and clearly stipulates the inspection and improvement of public safety, the change of utility, common improvement procedures of old buildings. Article 16 should be revised and the loopholes of building maintenance should be remedied. The regulations for the handling of illegal buildings should be revised. Meanwhile, a real estate management mechanism should be added to Management Regulations of Apartments and Buildings. Concrete suggestions are also proposed to the future implementation strategies of building maintenance in Landscape Law. (2) Research and development of the technical issue relating to the building repair businesses: The maintenance project of the “Recovery of Original Appearance and Maintenance or Original Function” should be studied; the maintenance techniques and inspection standards of the existing buildings should be formulated; standardized and specified maintenance materials should be formulated; the life-cycle maintenance and reparation guidelines for the structure and facilities of buildings should be formulated. Besides, a standardized management agreement of buildings and real estate should be drafted to meet the diversified management of apartments and buildings, so as to cope with the development trend of information computerization and strategic alliance in the management of the buildings. [Keywords] Sustainable utility of buildings, construction behavior, Repair, interior decoration, life cycle