國土計畫、環境行政與土地徵收之程序理性─以開發行為流程之民眾參與為中心

Abstract

近年來，諸如中科三期、中科四期、宜蘭城南基地等大型開發案，引發許多社會爭議及訴訟抗爭，民眾參與程序亦逐漸成為訴訟外及訴訟內之爭執重心。 另一方面，開發行為之設置係一連串之行政流程，涉及多種法規範的競合適用。且開發行為流程中不少法規範均規定有民眾參與程序，諸如都市計畫法、環境影響評估法，以及土地徵收條例。其中，區域計畫法及都市計畫法均為現行國土計畫法制，環境影響評估則涉及環境行政，最末者則為土地徵收，在這一連串的流程之中，如將開發行為流程中涉及之法規範之民眾參與程序割裂看待，不免忽略開發行為流程本係連動之行政程序，而失之片段。 著眼於國土計畫、環境行政與土地徵收之特性，開發行為流程之行政程序亦承載著背後的價值抉擇，並涉及利害關係人之權益保護，如何使開發行為行政流程更公開、理性，更符合民主與法治，均是建立開發行為流程之程序理性之重點。 本文各別檢視開發行為流程中涉及之現行多種法規範─都市計畫法、區域計畫法、環境影響評估法─之民眾參與相關規定，並細譯相關之行政法院判決，從開發行為流程之民眾參與程序整體觀察現行開發行為流程之民眾參與現狀。並進一步提出六項民眾參與原則，以及重建開發行為流程之民眾參與藍圖。

For many years, major Development Activities, such as the development of the Houli science park and the Erlin site at Central Taiwan Science Park, have caused much controversy in Taiwan. Most of the disputes are focus on due process, calling for more opportunities for citizen participation. However, the decision-making process of development activities involves many legal norms with citizen participation, such as Urban Planning Law, Regional Planning Law, Environmental Impact Assessment Act, and , Land Expropriation Statute. For a more complete view, it is better examining the whole the decision-making process rather than focusing on single legal procedure unit. This research gains a more integrated view through analysis of regulations and judgments concerning citizen participation in decision-making process of development activities. To restore the procedure rationality on national land planning, environmental administration, and land expropriation, this thesis proposes six principles of citizen participation and redraws the blueprint of citizen participation in the decision-making process of development activities.