o+/f39/f39/f39/f39/f39/Q-in+/f39/f39/f39/f39/f0AAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAA- o+/f39/f39/f39/f39/f39/Q-in+/f39/f39/f39/f39/f0AAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAA-Recurso n+ALo- 435/2009
Recorrente: Director dos Servi+AOc-os de Turismo (+b7OVgGXFkEpcQFxAlXc-)
Recorrida: Ag+AOo-ncia de Viagens e Turismo A, Lda.
(A+ZcWQSmcJllBRbFP4-)
A cordam no Tribunal de Segunda Inst+AOI-ncia da R.A.E.M.:
+AMA- confer+AOo-ncia neste TSI, o Relator original apresentou o seguinte projecto:
+IBw-I
No +AOI-mbito dos autos do recurso contencioso interposto por Ag+AOo-ncia de Viagens e Turismo A, Lda. do acto administrativo praticado pelo Director dos Servi+AOc-os de Turismo, registado sob o n+ALo- 472/08-ADM, e que corre os seus termos no Tribunal Administrativo, foi proferida a seguinte senten+AOc-a:
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N+AOM-o se conformando com essa senten+AOc-a, veio a entidade administrativa recorrida recorrer da mesma concluindo que:
I. O tribunal a quo entende que o Regulamento Administrativo n+ALo- 42/2004, de 30 de Dezembro +AOk-, na sua totalidade, ilegal+ADs-
II. Por entender que o Chefe do Executivo da RAEM n+AOM-o det+AOk-m poder legislativo e que a cria+AOcA4w-o de infrac+AOcA9Q-es administrativas novas ou o agravamento de infrac+AOcA9Q-es existentes, constituem mat+AOk-ria sujeita a reserva de lei+ADs-
III. Diferentemente, entende a entidade Recorrida que o Chefe do Executivo (Governo da RAEM) det+AOk-m, nalgumas mat+AOk-rias, poder legislativo origin+AOE-rio e que, no +AOI-mbito das mesmas, pode criar uma regulamenta+AOcA4w-o nova ou alterar um Decreto-Lei preexistente+ADs-
IV. Pois a LB, ao permitir ao Chefe do Executivo emanar Regulamentos Administrativos, reconhece-lhe compet+AOo-ncia para regulamentar determinadas mat+AOk-rias, de forma independente, desde que as mesmas n+AOM-o estejam reservadas +AOA- Assembleia Legislativa+ADs-
V. Esse poder do Chefe do Executivo caracteriza-se por ser um poder normativo independente, origin+AOE-rio e directamente emergente da LB+ADs-
VI. A mat+AOk-ria regulada pelo Regulamento Administrativo n.+ALo- 42/2004 n+AOM-o constitui mat+AOk-ria reservada +AOA- Assembleia Legislativa nem cabe, sequer, no +AOI-mbito das mat+AOk-rias de compet+AOo-ncia concorrencial entre os dois +APM-rg+AOM-os do poder+ADs-
VII. Mas constitui uma mat+AOk-ria que cabe na exclusiva compet+AOo-ncia do Governo porque decorre do artigo 129.+ALA- da LBM, onde se estabelece, no par+AOE-grafo 1.+ALA- que +ACI-O Governo da Regi+AOM-o Administrativa Especial de Macau determina, por si pr+APM-prio, o sistema relativo +AOA-s profiss+APU-es (. . .)+ADs-
VIII. Pelo que o Governo podia regular sobre a mesma, quer criando um regime novo, quer alterando um regime preexistente aprovado por Decreto-Lei+ADs-
IX. O sistema tal como delineado pela LB tamb+AOk-m n+AOM-o se compadeceria de uma limita+AOcA4w-o ao poder regulamentar do Executivo, sob pena deste se ver incapaz de dar cumprimento dos seus objectivos e salvaguardar de forma r+AOE-pida e eficiente os interesses p+APo-blicos que tem por miss+AOM-o prosseguir+ADs-
X. O Tribunal de +ANo-ltima Inst+AOI-ncia (TUI) tamb+AOk-m j+AOE- entendeu, em ac+APM-rd+AOM-o proferido em processo diferente, que um Regulamento Administrativo pode criar um regime legal sancionat+APM-rio materialmente novo+ADs-
XI. Por entender que o Chefe do Executivo e o Governo podem aprovar regulamentos apenas com fundamento na Lei B+AOE-sica, fora das mat+AOk-rias reservadas +AOA- lei pela Lei B+AOE-sica (princ+AO0-pio da reserva de lei) e sem preju+AO0-zo do princ+AO0-pio da preval+AOo-ncia da lei+ADs-
XII. A entidade Recorrida n+AOM-o concorda, igualmente, com o entendimento do tribunal a quo, segundo o qual no n.+ALo- 1 do artigo 3.+ALA- do Decreto-Lei n.+ALo- 52/99/M, de 4 de Outubro, a express+AOM-o +ACI-regulamentos+ACI- n+AOM-o abarca os actuais (p+APM-s 20 de Dezembro de 1999) Regulamentos Administrativos+ADs-
XIII. Uma vez que tamb+AOk-m tal norma legitima a interven+AOcA4w-o legislativa do Governo em mat+AOk-rias do foro sancionat+APM-rio+ADs-
XIV. Mas, mesmo que assim n+AOM-o se entenda, n+AOM-o existe qualquer norma na Lei B+AOE-sica que impe+AOc-a os regulamentos administrativos de criar deveres ou restri+AOcA9Q-es sobre os particulares+ADs-
XV. Pois de harmonia com o estabelecido no artigo 40.+ALA- da LB, os regulamentos n+AOM-o podem +AOk- impor restri+AOcA9Q-es aos direitos fundamentais, a que se refere o Cap+AO0-tulo III da Lei B+AOE-sica e aos direitos previstos nos Pactos mencionados nesse artigo 40.+ALA-, mat+AOk-ria essa que deve constar de lei+ADs-
XVI. O RA n.+ALo- 42/2004 que veio alterar as normas reguladoras da actividade de ag+AOo-ncia de viagens e da profiss+AOM-o de guia tur+AO0-stico +AOk-, por tudo isto, legal e plenamente v+AOE-lido no ordenamento jur+AO0-dico de Macau+ADs-
XVII. Pelo que deve o tribunal a quo fazer aplica+AOcA4w-o do n.+ALo- 2 do artigo 87.+ALA- e do n.+ALo- 2 do artigo 83.+ALA- ex vi do n.+ALo- 2 do artigo 85.+ALA-, para punir a Recorrente+ADs-
XVIII. A entidade Recorrida tamb+AOk-m n+AOM-o aceita que o acto recorrido enferme de erro nos pressupostos de facto porque a situa+AOcA4w-o f+AOE-ctica, fixada pelo tribunal a quo, +AOk- subsum+AO0-vel +AOA- norma constante da al+AO0-nea a) do n.+ALo- 2 do artigo 68.+ALA- do Decreto-Lei n.+ALo- 48/98/M+ADs-
XIX. O acto recorrido continha as raz+APU-es de facto que determinaram a sua pr+AOE-tica porque do processo constam provas das circunst+AOI-ncias de facto que demonstravam que o guia Cheng Man Ton induziu os turistas a efectuar compras em estabelecimentos certos e determinados+ADs-
XX. E da pr+APM-pria mat+AOk-ria de facto, dada como provada pelo tribunal a quo, se infere que houve indu+AOcA4w-o, por parte dos quatro guias, para que os turistas fizessem compras em lojas certas e determinadas+ADs-
XXI. Pelo que reitera a DST que deve o guia Cheng Man Ton ser punido ao abrigo da al+AO0-nea a) do n.+ALo- 2 do artigo 68.+ALA- e, concomitantemente, a ora Recorrida ao abrigo do n.+ALo- 3 do artigo 83.+ALA-, aplic+AOE-vel ex vi do artigo 85.+ALA-, todos do Decreto-Lei n.+ALo- 48/98/M, com a redac+AOcA4w-o que lhe foi dada pelo Regulamento Administrativo n.+ALo- 42/2004+ADs-
XXII. Por +APo-ltimo, n+AOM-o concorda a entidade Recorrida com a interpreta+AOcA4w-o que o douto tribunal faz da express+AOM-o +ACI-induzir+ACI- utilizada na lei+ADs-
XXIII. Para se verificar a indu+AOcA4w-o, neste caso, basta ter existido a persuas+AOM-o, a sugest+AOM-o, a insist+AOo-ncia, a instiga+AOcA4w-o, numa palavra +IBw-levar algu+AOk-m a...+IB0-, n+AOM-o sendo necess+AOE-rio o recurso a meios ileg+AO0-timos para consumar essa indu+AOcA4w-o+ADs-
XXIV. E resulta de todo o processado e provado que o guia Cheng Man Ton induziu os turistas a fazer compras naqueles estabelecimentos certos e determinados, escolhidos por si e pelos seus colegas, o que lhe estava vedado por lei.
Nestes termos e nos melhores de direito aplic+AOE-veis, que V. EX.as. doutamente suprir+AOM-o, deve o presente recurso ser julgado totalmente procedente, mantendo-se o acto praticado pelo Exm.+ALo- Senhor Director da DST e revogando-se, em conformidade, a senten+AOc-a recorrida, fazendo V. Exas., mais uma vez, JUSTI+AMc-A+ACE-
II
Foram colhidos os vistos, cumpre conhecer.
Conforme resulta do disposto nos art+ALo-s 563+ALo-/2, 567+ALo- e 589+ALo-/3 do CPC, ex vi do art+ALo- 1+ALo- do CPAC, s+AOM-o as conclus+APU-es do recurso que delimitam o seu objecto, salvas as quest+APU-es cuja decis+AOM-o esteja prejudicada pela solu+AOcA4w-o dada a outras e as que sejam de conhecimento oficioso.
Assim, as seguintes quest+APU-es que constituem o objecto do presente recurso:
1. da legalidade do Regulamento Administrativo n+ALo- 42/2004+ADs- e
2. do erro nos pressupostos de facto
1. D o+/f39/f39/f39/f39/f39/Q-in+/f39/f39/f39/f39/f0AAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAA-+AAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAA-a legalidade do Regulamento Administrativo n+ALo- 42/2004
Nos termos permitidos pelo disposto no art+ALo- 631+ALo-/5 do CPC, ex vi do art+ALo- 1+ALo- do CPAC, a prop+APM-sito da quest+AOM-o da legalidade do Regulamento Administrativo n+ALo- 42/2004, +AOk- nos de louvar e dar por integralmente reproduzido o julgado em primeira inst+AOI-ncia, quer quanto +AOA- decis+AOM-o, quer quanto aos respectivos fundamentos para julgar improcedente recurso nesta parte.
Ao que nos limitamos a acrescentar que dado o car+AOE-cter sancionat+APM-rio das normas em causa (os art+ALo-s 83+ALo-/2, 85+ALo-/1 e 87+ALo-/2 do D. L. n+ALo- 48/98/M, com a nova redac+AOcA4w-o dada pelo Regulamento Administrativo n+ALo- 42/2004), a ilegalidade dessas normas n+AOM-o pode ser retroactivamente sanada pelo art+ALo- 10+ALo- da Lei n+ALo- 13/2009.
2. Do erro nos pressupostos de facto
O Tribunal a quo declarou a nulidade do acto administrativo por ter aplicado normas ilegais.
E diz ex abundantia que, mesmo n+AOM-o entendesse assim, +AOk- de anular o acto por erro nos pressupostos de facto.
S+APM- por mero gosto do exerc+AO0-cio acad+AOk-mico, +AOk- de salientar que houve efectivamente erro nos pressupostos de facto.
Para o Tribunal, n+AOM-o resultam da mat+AOk-ria de facto provada quaisquer factos demonstrativos de que os quatro guias chegaram a induzir os turistas a efectuar compras em estabelecimentos para onde os levaram.
+AMk- verdade, lida a mat+AOk-ria de facto assente, n+AOM-o vimos a tal +IBw-indu+AOcA4w-o+IB0-.
Entende a ora recorrente que se infere que houve indu+AOcA4w-o da pr+APM-pria mat+AOk-ria de facto.
+AMA- excep+AOcA4w-o da circunst+AOI-ncia de uma percentagem das quantias gastas nas compras efectuadas nas lojas reverter para o benef+AO0-cio pessoal, de que a recorrente tentou inferir a conclus+AOM-o de que houve indu+AOcA4w-o por parte dos quatro guias, os outros factos que a ora recorrente alegou agora na petit+APM-rio do recurso n+AOM-o passam da interpreta+AOcA4w-o que ela pr+APM-pria fez dos elementos existentes nos autos, mas n+AOM-o da mat+AOk-ria de facto dada por assente na senten+AOc-a de primeira inst+AOI-ncia.
Quanto +AOA- revers+AOM-o de uma certa percentagem das quantias gastas por turistas nas lojas a favor dos guias, limitamo-nos a dizer que essa circunst+AOI-ncia de per si n+AOM-o tem a virtualidade de os levar a concluir que houve efectivamente indu+AOcA4w-o, quanto muito uma circunst+AOI-ncia que estimula a vontade de trabalhar dos guias em causa.
Tudo visto resta decidir.
III
Nos termos e fundamentos acima expostos, acordam negar provimento ao recurso mantendo na +AO0-ntegra a senten+AOc-a de 1+AKo- inst+AOI-ncia.
Sem custas por isen+AOcA4w-o subjectiva.
Notifique.
RAEM, aos 28 de Junho de 2012+IB0-
Depois da discuss+AOM-o do projecto, saiu o Relator vencido na parte da quest+AOM-o da ilegalidade do Regulamento Administrativo n+ALo- 42/2004 e o 1+ALo- Juiz adjunto passou a relatar t+AOM-o s+APM- a parte em que a maioria se venceu, nos seguintes termos, mantendo-se o restante fundamento do projecto:
Quanto +AOA- quest+AOM-o de (i)legalidade do Regulamento Administrativo, limitaremo-nos a manter a posi+AOcA4w-o j+AOE- assumida nos ac+APM-rd+AOM-os proferidos neste TSI, entre outros, o de 19 de Janeiro de 2012 no processo n+ALo- 227/2010, em conformidade dos quais se vem entendendo n+AOM-o haver viola+AOcA4w-o da lei o referido Regulamento Administrativo, dando-se por v+AOE-lidos todos os fundamentos neles tecidos para a decis+AOM-o da presente quest+AOM-o.
Sendo assim, mantendo-se o restante fundamento do projecto, +AOk- de revogar a senten+AOc-a da parte que se declarou ilegal o referido RA n+ALo- 43/2004, mas anular o acto por ter incorrido o erro nos pressupostos de facto.
Sem custas por isen+AOcA4w-o subjectiva.
RAEM, aos 5 de Julho de 2012
Choi Mou Pan
+MAAwAA-Jo+AOM-o A. G. Gil de Oliveira
Lai Kin Hong
Vencido, enquanto relator primitivo nos
precisos termos do projecto do Ac+APM-rd+AOM-o
que elaborei e aqui integralmente reproduzido.
Estive presente
Mai Man Ieng
TSI-.435-2009 P+AOE-gina 1