現階段農地釋出執行問題之研究

Abstract

農業部門在面對加入WTO的衝擊與非農業產業對土地需求殷切情況下，雖然表達釋出農地之決心，然而審視現行土地變更使用相關法制，在認定農地變更使用與否的標準不明確，執行面又受到審查方式、程序、認知及相關因素影響，造成農地區位供需失衡、零星變更及違規使用情形普遍，嚴重破壞農業生產環境完整性。顯見農地釋出政策面臨相關執行問題須迫切檢討及調整之必要。有關論文結構及相關內容，主要在政策執行、財產權保障及程序正義之理論架構下，採政策執行後評估之途徑，以文獻分析法、比較制度法及個案研究法，透過對於大、小面積不同的農地釋出機制衍生之執行問題及農業區劃定與調整標準的合理性等檢討，從標準明確化、機關執行、民眾參與度等面向予以體察，提供制度興革意見。同時，基於大面積農地變更使用審議及「國土計畫法」草案明定之開發，均採行開發許可制度，為我國農地變更使用重要之案型，故兼採比較方法，以英國實施經驗提供我國制度參考，最終則是希望解決政策執行問題，落實政策理想目標。本論文最終研究建議包括農業分區應依使用狀況，作不同等級的管制及建置農業經營專區，才能真實反應土地資源合理利用；「農業主管機關同意變更使用審查作業要點」應提升法令位階；對於小面積之農地開發，亦應適度要求製作環境影響評估；增訂民眾參與及落實開發協議規定；善用行政處分附款輔助達成管制目標；小面積農地變更使用審查可採合議制方式；審查分級制度應明確機關權責。

In order to cope with the demand for the land for non-agricultural use and the impact of entering WTO, the government has announced a policy of farmland release in 1995 to accelerate the converting of farmland methodically. However, related regulations could not catch up with the need for executing that policy, therefore, industrial plots are sprawling as usual and the agricultural environment has been spoiled seriously as well. Obviously, this policy has encountered great difficulties and should be reviewed and adjusted urgently. This study is based on the theories of policy implementation, property right guarantee and procedure justice to evaluate the outcome of the policy. Some research approaches, such as literatures review and analysis, systems comparison, and case study, etc. have been adopted also. For the sake of improving the farmland converting system, the overall mechanism has to be reviewed, including inspecting criteria, implementing agent, citizen participation, etc. Simultaneously, planning permission system plays a very important role on farmland converting system. And England is experienced in this field, so that it is useful to consult their experience to improve our system. Finally, some outputs of this insightful study deserve to be referred by policy makers, such as agricultural zone has to be sub-classified and limited its use depending upon its sub-class, to set up agricultural specialization zones according to the suitability of farmland in order to develop its effectiveness. Besides, environment impact assessment have to be hold no matter how small scale of farmland to be converted. Citizen participation is also helpful for implementation of policy. The jury system is also a good way to be adopted for evaluating small scaling farmland converting cases.