我國地上權住宅法律關係之研究

Abstract

財政部為了活化和有效利用國有土地，制定了「國有非公用土地設定地上權作業要點」，該政策從民國99年開始實施，一直到111年8月22日經歷了12次修正。其中，102年9月30日的修正更進一步規定了地上權和地上建物的轉讓規定，這使得不動產市場出現了兩種地上權住宅產品，分別是「使用權住宅」和「地上權住宅」。 透過設定地上權，充分發揮國有土地的價值，並促進土地的開發和利用，政府可以保留土地的所有權，更靈活地利用土地資源，購屋消費者也能有更多的住宅產品選擇，為國家的土地資源管理和不動產市場的發展帶來了新的契機，但也帶來了挑戰。 消費者購買國有土地設定地上權住宅時，購買的是「使用權住宅」還是「地上權住宅」，消費者常常容易混淆並不清楚兩者之間的差異。購買「使用權住宅」時，消費者實際上購買的是屬於債權效力的使用權，在辦理買賣移轉和房屋貸款等事務時，消費者需要透過地上權人來處理或提供擔保，消費者在此情況下並沒有自由使用、收益和處分該土地的權利，並且受限於土地使用合約中的條款和約定；相反，購買「地上權住宅」時，消費者有土地地上權持分和建物所有權的權益，在經過登記程序後，消費者擁有自由使用、收益和處分的權利。由於這兩種住宅的性質和權益有所不同，消費者在選擇和購買時應該要明確理解其差異。然而，目前的相關制度對於購買使用權住宅的消費者權益保障尚未有確定的定論，這使得消費者更容易混淆和不清楚自身的權益。在未來的地上權住宅市場發展中，相關的法律和制度需要更加明確和完善，以保護消費者的權益並提供更清晰的資訊和規範。 「使用權住宅」和「地上權住宅」是國有土地設定地上權制度中的產生的兩種不同權益的住宅，與之相比，還有一般的「所有權住宅」，三者具有不同的權益和義務。本文將說明「使用權住宅」及「地上權住宅」之歷程，並與「所有權住宅」進行相關比較，同時，將分述「使用權住宅」及「地上權住宅」之法律依據，以及涉及土地所有權人、地上權人各消費者間之法律關係。此外，將探討國有非公用土地設定地上權制度產生的問題，以及這些問題對購屋消費者權益的影響，期能督促權責機關積極面對問題並提出配套措施，以保障消費者權益。

The Ministry of Finance has established the "Operational Guidelines for Setting Superficial residence on State-Owned Non-Public Land" in order to revitalize and effectively utilize state-owned land. This policy has been implemented since the year 2010 and has undergone 12 revisions until August 22, 2022. Among them, the amendment on September 30, 2013, further stipulated the regulations for the transfer of Superficial residence and superstructures, resulting in the emergence of two types of Superficial residence residences in the real estate market, namely "Usage residences" and " Superficial residence". By establishing Superficies, the government can fully leverage the value of state-owned land and promote its development and utilization while retaining the ownership of the land. This allows for more flexible use of land resources and provides homebuyers with a wider selection of residential properties. It presents new opportunities for national land resource management and the development of the real estate market but also brings challenges. When consumers purchase state-owned land with established Superficies residences, they often confuse and misunderstand the differences between "Usage residences" and "Superficies residences." When purchasing a " Usage residences", consumers are essentially acquiring the right of use, which has the effect of a debt claim. In transactions such as buying, transferring, and obtaining housing loans, consumers need to deal with or provide guarantees through the superficiary. In this situation, consumers do not have the rights of free use, income, and disposal of the land, and they are bound by the terms and conditions of the land use contract. On the contrary, when purchasing a "Superficies residence," consumers have the rights to the superficies interest in the land and the ownership of the superstructure. After going through the registration process, consumers have the freedom to use, benefit from, and dispose of the property. Due to the different nature and rights of these two types of residences, consumers should clearly understand their differences when choosing and purchasing. However, the current relevant system has yet to reach a definitive consensus on the protection of consumer rights in the purchase of "Usage residences," making it easier for consumers to confuse and misunderstand their own rights. In the future development of the Superficies residence market, it is necessary to have clearer and more comprehensive laws and regulations to protect consumer rights and provide clearer information and norms. "Usage residences" and "Superficies residences" are two types of residences that arise from the establishment of Superficies on state-owned land, and in comparison, there are also conventional "ownership residences." These three types of residences have different rights and obligations. This article will explain the historical development of "Usage residences" and "Superficies residences" and make relevant comparisons with "ownership residences." It will also describe the legal basis for "Usage residences" and "Superficies residences" and the legal relationships among landowners, superficiaries, and consumers. Additionally, it will explore the issues arising from the establishment of Superficies on state-owned non-public land and the impact of these issues on the rights of homebuying consumers. The aim is to urge relevant authorities to actively address these problems and propose comprehensive measures to safeguard consumer rights.