非都市土地農牧用地變更審議制度之研究-以竹科宜蘭城南基地與清華大學宜蘭園區為例

Abstract

近年來為配合重大建設之開發如設置科學園區、國立大學分部設校計畫等土地開發，政府機關多按區域計畫法第15條之2規定以申請開發許可方式辦理農地之變更使用。於是大批農地變更為建築用地、工業用地或特定目的事業用地使用之情形屢見不鮮。如此大型之開發案雖經整體規劃，但規劃過程中僅考量開發案基地內本身之條件，卻忽視對週遭之環境或相關計畫之協調與整合，以致於不僅造成農地大量流失外，亦對整體環境品質之維護造成嚴重影響。\n目前非都市土地開發管理在實務操作的面向上，似呈現開發許可制度並未考慮區域計畫精神、制度設計未考慮層級、各層級計畫之間的指導或承接關係普遍存在欠缺適當的聯繫機制、個案變更審議過程中未與國土規劃相連結且易受到政治影響、涉及變更農地使用時僅針對個案審議未考量是否影響周邊環境、農業主管機關對於優良農地保護及審查機制不足、開發方式太縱容個案開發許可、僅有量之需求但無質之要求、民眾事先參與之管道欠缺等之缺點，均有待探討謀求解決之道。\n本文以土地使用計畫審議之合理性為主軸，應用永續發展中環境、經濟和公平（environment, economy, and equity）三個E之概念與區域計畫法第15條之2於國土利用係屬適當而合理之原則，探討開發許可中，農牧用地變更審議之規範與執行情形及民眾參與之方式，並藉由對專家學者、當地居民、公部門與相關組織之深入訪談及個案綜合分析結果，加以檢視與研討，確認目前非都市土地農牧用地變更審議執行上遭遇之課題，最後針對各課題研提改善策略與配套措施，以供政府未來執行非都市土地農牧用地變更審議政策之參考，期能達到農地環境資源合理利用之目標。

In recent years, for co-operating the development of significant construction, like establishment of science parks, the national university branch and so on, the Government applies for the development permission to change the farmland use according to article 15-2 in Regional Plan Act. Large quantities of farmland are often changed to construction land, industry land or special-purpose land. So large-scale land development cases are planned comprehensively, and conditions of developed land base are considered in the planning process. Actually, the coordination and conformity to the environment or related plan are neglected. This not only causes the massive lost farmland, but also influences maintenance of the overall environment quality seriously.\nAt present, in the non-urban land development management in the practice operation, the spirit of regional plan is not considered in the development permission institution. The Government do not considered the levels in the institution design. It is short of the suitable link mechanism in the instruction or continuation between plans in various levels. In the examination process of land-change cases, the cases are not linked to the national land planning, and easily influenced by the political power. When involving the farmland conversion, only the case itself is examined, but the effects on the peripheral environment are not considered. The agricultural agency lacks the superior farmland protection and examination mechanism. In the development way, the Government too tolerates the case development permission, and only has demand of the quantity without request for the quality. Besides, public participation prior to examination process is lacked. Above shortcomings should be discussed and solved.\nThis article takes the rationality of land use plan examination as the main axle. It applies the concepts of three Es including environment, economy, and equity in the sustainable development, and adopts the principle of suitable and reasonable national land use in article 15-2 in Regional Plan Act. It discusses the standards and the situations of examination in agricultural land conversion, and the way of public participation in development permission. According to the in-depth Interviews of experts, local residents, the government agency and related organization and the results of cases study, it inspects and confirms present layout problems of examination in agricultural land conversion of non-urban land. Finally, it proposes the improvement strategies and the coordinated measures for various problems to offer references to the governmental policy in the future for achieving the goal of the reasonable use of farmland environment resources.