03.談一談最常見的牌照~飲食場所

All about licences for Food and Beverage Industry in Macau

前言

Introduction

飲食行業是人類最古老、最普遍的商業行為之一。在澳門的眾多牌照申請中，它的申請數量一直名列前茅。回歸前，澳門所有的飲食場所都由當時的旅遊司負責發牌。然而，1999年澳門回歸後不久，因為申請輪候時間過長以及各部門行政分工重劃等原因，市政署（當年的民政總署）根據16/2003號行政命令成立了“一站式中心”。“一站式中心”不僅僅是收集及分發文件的輔助功能，法律賦予了市政署和旅遊局同樣的發牌權力（權限實體）。今天，我們來討論這兩個部門申請牌照的差別以及申請審批過程有何不同。

The food and beverage industry is one of the oldest and most common commercial activities. In Macao, it consistently ranks high in license applications. Macau before return to China, the MGTO (Macau Tourism Department) handled all dining establishment licenses. After the 1999, due to long application times and administrative reorganization, the IACM (formerly IAM) established a "One-Stop Service Centre" under Administrative Order No. 16/2003. The Centre is more than just a document collection and distribution point; it also grants licensing authority to both the IAM and the MGTO. Today, we'll discuss the differences between these two departments in the licensing application process and review procedures.

雖然剛剛提到，澳門今天飲食牌照發牌的權限實體分開了旅遊局及市政署兩個部門。但是，兩個部門在剛開始時沿用的法律條文是完全一樣的，即83/96/M及16/96/M號法令。不過，兩部門針對同類場所對以上兩條法令的觀點和執行方式越走越遠。於是，在2022年1月1日，旅遊局對所管轄業務和牌照等，以8/2021《酒店業場所業務法》取代，並在44/2021號行政法規中對所有要求作更詳細的規範。我們將逐步解釋這兩條法令中針對較簡單飲食場所的部分，其他如酒吧、夜總會等場所將在日後開新章節詳談。

As mentioned earlier, the licensing authority for food and beverage establishments in Macao is divided between the MGTO and IAM. Initially, both departments used the same legal provisions, namely Decrees 83/96/M and 16/96/M. However, their perspectives and implementation of these decrees for similar establishments have diverged significantly over time. On January 1, 2022, the MGTO replaced its regulations with the 8/2021"Lei da actividade dos estabelecimentos da indústria hoteleira." and issued more detailed requirements in Administrative Regulation No. 44/2021. We will gradually explain the sections of these decrees that pertain to simpler food establishments. Other establishments, such as bars and nightclubs, will be discussed in new chapters later.

先談一談飲食場所的種類和部門的分工

澳門現有的飲食場所，第一種是由旅遊局管理的餐廳(Restaurante)。過去，餐廳分為一級、二級和豪華級三個等級，但現在已經沒有這樣的分級了。新的分類方式更符合現實情況，將其分為餐廳、簡便餐飲場所、食物檔攤和美食廣場等。

Types of food and beverage establishments and the division of responsibilities between the departments

In Macao, the first type of food and beverage establishments are those managed by the MGTO, classified as restaurants. Previously, restaurants were graded into first, second, and luxury levels, but this is no longer the case. The new classifications, which better reflect current realities, include restaurants, simple dining places, food stalls, and food courts.

第二種為市政署一站式中心管理的美食牌照（Estabelecimento e comidas）。其實，根據16/2003號行政命令，這些場所原稱為“同類場所”（Similar），但因名稱較為古怪，大家習慣稱其為“美食牌”。市政署的美食牌照分為兩大類。

第一大類是飲料場所（Estabelecimento de bebidas），包括茶館（casa de chá，俗稱第一類牌）、咖啡室（café，俗稱第二類牌）和冰室（geladaria，俗稱第三類牌）。

第二大類是飲食場所（Estabelecimento de comidas），包括粥麵店（loja de sopa de fitas e canjas，俗稱第四類牌）和飯店（casa de pasto，俗稱第五類牌）。

每一類牌照對應的設施要求有所不同，例如是否需要設置油煙淨化設備、隔油井和廚房面積的比例等。其中，第一至三類的要求較為相近，第四和第五類的要求亦較為相近。另外，俗稱第五類牌照（有人稱為大牌）的飯店（casa de pasto），基本上能夠包含前四類的功能，所以條件允許的話，應該儘量申請第五類牌照。

The second type of license is managed by IAM’s One-Stop Service Centre, known as "Food and Beverage Establishments" (Estabelecimento e comidas). Originally referred to as "Similar" under 16/2003, the name was changed to "Food and Beverage Establishments" for clarity. IAM categorizes these licenses into two main types.

The first type is beverage establishments (Estabelecimento de bebidas), which include tea houses (casa de chá, commonly known as Type 1), cafes (café, commonly known as Type 2), and ice cream parlours (geladaria, commonly known as Type 3). The second type is food establishments (Estabelecimento de comidas), which include noodle and congee shops (loja de sopa de fitas e canjas, commonly known as Type 4) and eateries (casa de pasto, commonly known as Type 5).

Each type has different facility requirements, such as ventilation systems, grease traps, and kitchen size. Type 1 to Type 3 have similar requirements, while Type 4 and Type 5 share other similarities. Notably, Type 5 licenses (often called “major licenses”) for eateries can encompass the functions of the first four types. Thus, applying for a Type 5 license is recommended if conditions allow.

下表簡述不同牌照的類型和職能。

The table below outlines the different types of licenses and their functions.

兩個不同部門的牌照申請順序和要求

Application Procedures and Requirements for Licences from Two Different Departments

市政署一站式中心

選址方面：場所需選址在商業用途的店鋪或商場。用餐區高度要求為2.6米，有洗手間或商場能提供共同的洗手間。#有例外情況

申請流程方面：自2024年起，市政署全面使用商社通服務處理相關牌照申請，不再接受傳統實體文件提交。商社通系統會將申請人提交的資料直接發送至相關部門，包括DSSCU、消防局、旅遊局、衛生局、市政署、勞工局和環保局等。目前每個部門會在系統上直接回覆，市政署負責總結。如計劃未獲批核，則需根據不同部門的要求作出回覆或改進。

IAM One-Stop Centre

Location: The shop must be located in commercial shops or malls. The dining area must have a height of 2.6 metres, with available restrooms or shared restrooms provided by the mall. #Exceptions exist

Application Process: As of 2024, IAM uses the (BAP)business & Associations Platform system for licence applications, no longer accepting physical document submissions. The system sends applicant information directly to relevant departments, such as DSSCU, Fire Department, MGTO, Health Department, Labour Department, and Environmental Protection Department. Each department responds within the system, and IAM summarises the feedback. If the plan is not approved, applicants must address or improve based on departmental requirements.

旅遊局

選址方面：旅遊局餐廳牌照般出現於商業用途的商舖、商場或酒店的各商業樓層。用餐區高度的需求因類別而異，需有洗手間或商場提供的公共洗手間、員工更衣室、置物室和員工洗手間，並可能根據等級需要專屬的員工通道。#有例外情況

申請流程方面有兩種選擇：

簡化程序（約七年前推出）：

先向DSSCU提交完整的更改工程計劃（若有更改）。再向旅遊局提交由A、B兩部分組成的文件，A部分為旅遊局的申請表及附件，B部分為已向OP提交的“建築計劃”部分。

然後將整套計劃提交給OP，他們會轉發給消防局、旅遊局、衛生局、市政署、勞工局和環保局等部門。每個部門回覆技術意見後，OP會將每個意見及總結轉發給你。若未獲批核，需根據各部門要求改進並重新提交，直至完成。每次向OP提交修改文件時，需同時向旅遊局提交一份以重覆第一步驟。

而你的文件提交給旅遊局後，他們會轉發到消防局和DSSCU。沒錯，同一份文件你要交給兩個不同的部門，然後他們互相轉發。更有趣的是，你通過旅遊局提交的文件，其中一個副本會被轉發到DSSCU，DSSCU收到後會再轉發一份給消防局，消防局看完後會回覆DSSCU，DSSCU再把消防局和自己的意見總結後交回旅遊局。有趣吧？若計劃未獲批核，需不斷重複以上流程，直到完成。

- 第二種是新推出的簡化程序(有人稱為一站式，其實意義上並不貼切):

其實和第一種方法有點像，只是把A部份和B部份的文件所有文件交到旅遊局，由旅遊局統一分發給各部門。

第二種方法差別是在於對建築、消防、機電計劃的更改部份，原本由申請人直接去面對工務局和消防局等變成只通過旅遊局去提交給其他部門。另外，文件傳送的時間後者有優勢，減小了第一種方法的同一份一模一樣文件互寄所延誤的情況，缺點也是有的，就是遇到有問題時，各個意見部份的溝通變得更為間接。

MGTO (Macau Tourism Department)

Location: Restaurant licences from the MGTO must be located in commercial shops, malls, or hotel floors. The dining area height varies by category and must have restrooms or shared restrooms provided by the mall, staff changing rooms, storage rooms, and staff restrooms. Depending on the grade, exclusive staff passageways may be required. #Exceptions exist

Application Process: There are two options:

Simplified Procedure:

First, submit a complete renovation plan to DSSCU (if there are any changes). Then, submit a two-part document to the MGTO: Part A is the application form and attachments for the MGTO, Part B is the "building plan" previously submitted to OP.

Submit the entire plan to OP, which will forward it to the Fire Department, MGTO, Health Department, Municipal Affairs Bureau (IAM), Labour Department, and Environmental Protection Department. After each department provides technical feedback, OP will summarise and forward it to you. If the plan is not approved, you will need to make improvements based on the feedback and resubmit. Each time you submit revised documents to OP, you also need to submit a copy to the Tourism Department, repeating the first step.

After you submit your documents to the MGTO, they will forward them to the Fire Department and DSSCU. Yes, you need to submit the same document to two different departments, and they will transfer it between themselves. Interestingly, when you submit your documents through the Tourism Department, one copy will be forwarded to DSSCU. DSSCU will then forward a copy to the Fire Department. After reviewing it, the Fire Department will respond to DSSCU, and DSSCU will summarise both their own and the Fire Department's opinions before sending them back to the Tourism Department. Fascinating, isn't it? If the plan is not approved, you need to repeat this process until it's completed.

2. The second option is the newly introduced simplified procedure (sometimes called one-stop, which is not entirely accurate).

This is similar to the first method but requires you to submit all documents (Parts A and B) to the MGTO. The MGTO will then distribute the documents to various departments.

The difference with the second method lies in the amendments to building, fire, and electrical plans. Initially, applicants had to directly face the Public Works Department and the Fire Department. Now, they only need to submit through the MGTO. The second method has an advantage in document transmission time, reducing delays caused by resending identical documents in the first method. However, the drawback is that communication between different departments becomes more indirect when issues arise.

兩個部門之間驗收過程的主要差別

About Handover and Final inspection

市政署一站式中心

當你的計劃被批准和工程完成後，你可以使用商社通系統通知消防局和市政署一站式中心進行驗收。

消防局會因應你的驗收邀請進行檢查，包括消防灑水系統、乾式消防系統、建築平面、大樓的共同系統、燃料安全、逃生和滅火設備等。雖然檢查項目繁多，但過程相當簡單直接。隨後，消防局會因市政署的邀請再來一次，主要進行總結。(IBC場所除外)

當市政署收到你的驗收邀請後，會在一週內安排食安中心進行食物安全衛生的檢查，以及環境衛生的油煙排放測試。最後，委員會會帶領所有相關部門的代表進行綜合檢查並做總結。

IAM One-Stop Centre

Once your plan is approved and the work is completed, you can use the B.A.P. to notify the Fire Department and the IAM One-Stop Centre for inspection.

The Fire Department will inspect in response to your request, covering the sprinkler system, dry fire system, building layout, common systems, fuel safety, escape routes, and fire-fighting equipment. Despite the numerous items, the process is straightforward. Subsequently, the Fire Department will return upon IAM's invitation for a final summary (excluding IBC locations).

Upon receiving your request, IAM will arrange for the Food Safety Centre to conduct a food safety and hygiene inspection, as well as an emissions test for kitchen fumes, within a week. Finally, a committee with representatives from all relevant departments will conduct a comprehensive inspection and provide a summary.

旅遊局

和市政署的情況類似，當你的計劃被批核和工程完成後，你需要分別通知消防局、旅遊局和DSSCU進行驗收。

消防局會因應你的驗收邀請進行檢查，包括消防灑水系統、乾式消防系統、建築平面、大樓共同系統、燃料安全、逃生和滅火設備等。雖然檢查項目繁多，但過程相當簡單直接。隨後，消防局會因應旅遊局的邀請再來一次，進行總結。（IBC場所除外）

旅遊局會聯同其他相關部門（如DSSCU、市政署、消防局、環保局、衛生局、勞工局等）進行聯合巡查，並根據申請計劃的規模安排其他部門參與。當聯合巡查通過後，你大約需等待一周取得正式牌照。

很多人忽略了需要向DSSCU獨立申請驗收。與市政署不同，旅遊局和DSSCU的驗收是分開進行的。因此，即使DSSCU曾參與旅遊局的聯合巡查，亦不代表DSSCU已完成驗收，因為當日DSSCU只是應旅遊局邀請提供意見。在大多數情況下，聯合巡查通過後，即使不單獨邀請DSSCU驗收，你也能取得牌照。但若你經營的是酒店或大型綜合體，將來可能會遇到各政府部門文件無法對應的問題。這是新手常犯的錯誤，更可怕是問題可能在五到十年後才會顯現。因此，除非有特殊情況，否則請務必完成所有手續。

MGTO(Macau Tourism Department)

Similar to the procedure with IAM, once your plan is approved and the work is completed, you need to notify the Fire Department, MGTO, and DSSCU separately for inspection.

The Fire Department will conduct an inspection in response to your request, covering the sprinkler system, dry fire system, building layout, common systems, fuel safety, escape routes, and fire-fighting equipment. Although there are numerous items, the process is fairly straightforward. The Fire Department will then return upon MGTO's invitation for a final summary (excluding IBC locations).

MGTO will coordinate a joint inspection with other relevant departments, such as OP, IAM, Fire Department, Environmental Protection Bureau, Health Bureau, and Labour Affairs Bureau. Additional departments may be involved based on the scale of your application. After passing the joint inspection, you will need to wait about a week to receive the official licence.

Many people overlook the need to apply for DSSCU's inspection separately. Unlike IAM, MGTO and DSSCU conduct independent inspections. Therefore, even if DSSCU participated in the joint inspection organised by MGTO, it doesn't mean DSSCU has completed its own inspection. During the joint inspection, DSSCU only provides opinions upon MGTO's invitation.

其他常見的相關問題....

有關酒牌的問題:

Ans>澳門的餐廳、酒吧、美食等等場所，都沒有"酒牌"這種東西去申請。這和香港的做法有明顯的不同，澳門是所有餐飲場所都能夠合法地賣酒的，但要注意場所的M1經營範圍、和6/2023法規中標示張貼和設置的問題。

有關外賣和網上訂餐的牌照:

Ans>目前除了財政局的M1開業申請外，需要向IAM申請外賣行政牌照。

為什麼有些酒店或酒店綜合體內能申請市政署牌照:

Ans>其實可以看看上文有關一站式發牌的條件就會明白。但聽說不久的將來兩個部門負責的範圍會重新劃分。

為什麼有些寫字樓也能申請飲食牌照:

Ans>這有兩種情況，第一是立法改例之前申請的，當年物業其實對寫字樓和商業用途並沒有明顯的分界線。也有說法是原來寫字樓和商業根本是一樣的，後來才立法修改(求資料來源)。另一種是例如南灣AIA的部份樓層也存在餐廳等，其實發牌的原則並沒有改變，你只要看清楚之前講到的發牌條件就會明白(場所為商業用途等)。

地庫能不能經營飲食場所:

Ans>地庫只要滿足消防條例、高度和用途就可以。

客人能否在自已座位上使用明火碳燒，類似日式烤肉? :

Ans>可以，必需為戶外或半戶外，近年在室內使用明火有所放寬，需要額外加上一氧化碳警報器。

為什麼一些用途不明的舊建築，在建築條件、消防及場所性質均不符合申請條件的情況下，但仍可以取得牌照:

Ans>這有兩種較常見的情況，第一種是在條例生效前已取得牌照並且沒有間斷使用的場所，第二種是評為古蹟或文化舊建築，可向旅遊局提出部份條件豁免。

有時會聽到場所使用的是IBC規範，所以牌照要特別處理:

Ans>所謂 IBC是 International Building Code的簡稱，其實非本地法規不只有IBC一種，在中國大家有一個很貼切的名稱叫"超規範"，其實，只要是引用超規範設計的建築都要特別去處理，大家有興趣可以看看另一篇文章。<<07. 簡述澳門引用超規範進行建築及消防設計的情況>>

聽說有些商舖，因其他業主們反對開設飲食場所或某類場所而導致不能發牌

Ans>我非法律專業人仕，但就務實來看，的確出現過類似的情況。聽說北區的新益業主會以排水系統不理想而拒絶某商舖申請飲食牌照，但最終業主也沒有受到阻止並能成功申請，歸根究底就是概據澳門特別行政區基本法第六條 "澳門特別行政區以法律保護私有財產權"這條去解釋，意思就是不能因為其他業主的個人喜好或其他原因而侵犯人他人的私人財產及法定權益。但是，倘若在大樓或小區建設期間，在登記階段已將這些條件寫入公契中，就是另外一回事了。

Miscellaneous Related Issues

Regarding Liquor Licences: In Macao, restaurants, bars, and eateries do not require a specific "liquor licence," unlike in Hong Kong. All dining establishments can legally sell alcohol, but must adhere to M1 operational scope and signage regulations as per Law 6/2023.
Licences for Delivery and Online Food Orders: Apart from the M1 business opening application with the Financial Services Bureau, an additional delivery licence must be obtained from IAM.
Hotel Licences: Some hotels or integrated resorts can apply for an IAM licence based on the conditions outlined for one-stop licensing. It’s expected that the responsibilities of the relevant departments will be redefined soon.
Office Building Licences: There are two scenarios. Firstly, licences applied for before legislative amendments, when property usage did not distinguish clearly between office and commercial use. It was later legislated to differentiate (please refer to sources). Secondly, buildings like Nam Van AIA have some floors with restaurants. The licensing principle hasn't changed, and as long as the conditions for commercial use are met, licences can be obtained.
Basement Dining Facilities: Basements can host dining establishments if they comply with fire regulations, height, and usage standards.
Use of Open Flame at Dining Tables (like Japanese BBQ): This is allowed outdoors or semi-outdoors. Recent relaxations permit indoor use of open flames, provided a carbon monoxide detector is installed.
Licences for Non-Conforming Old Buildings: Two common scenarios—firstly, premises that obtained a licence before the regulations took effect and have continued operation; secondly, historic or cultural buildings where partial exemptions can be sought from MGTO.
IBC and Special Licence Handling: IBC stands for International Building Code. Buildings exceeding standards require special handling. For more details, please refer to the article "07. Overview of Macao's Use of International Standards in Building and Fire Safety Design."

Some shops face licensing issues due to opposition from other property owners against certain businesses, like food and beverage outlets. While Macau’s Basic Law protects private property rights from being infringed upon by personal preferences, specific restrictions listed in joint property contracts during the building's registration can be exceptions.

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