| 摘要: | 都市計畫農業區位於都市邊緣，伴隨都市人口集聚，工商業快速發展，經濟型態傾向多元化，為因應此種變遷，農業區所扮演之功能亦呈現複雜且多樣化，其所設定「以農業生產」為定位基準，勢必因此而動搖。在土地使用管制制度之訂定及實施之框架下，要求農業區內之土地所有權人（或使用者）固守農業區土地使用只供農業生產為唯一用途，非僅造成資源分配之浪費，亦可能造成都市發展腳步緩慢，經濟活動怠滯，最終影響一國經濟發展。
不可否認的，都市計畫農業區作非農業使用情形日益嚴重，在此背後值得思考的是；僵化的土地使用管制規定確非解決土地使用問題唯一有效手段。故為平衡、輔助都市化急速發展，並兼顧農業生產功能，達到農業區合理使用為目的，需依各農業區屬性不同作彈性之調整，方能因地制宜。
本研究以苗栗縣竹南鎮頭份鎮都市計畫農業區為案例，就土地使用管制上進行現況調查分析及與專家學者作深度訪談，綜合調查與訪談結果，就土地使用管制法規面與現況使用面二者進行探討。藉此研究，期能發掘相關問題、分析相關議題進而研擬相關課題，在管制方向、管制內容、管制制度及管制執行上，提出改進對策。本論文計分六章十九節，茲分述如下：
第一章就本文研究動機與目的、範圍與內容、方法與流程、研究架構及研究範圍與內容作說明。第二章共分兩節，就本研究相關之文獻與理論廣為蒐集，並參考專家學者之論述，以奠定本研究之基礎。第三章對台灣都市計畫農業區土地使用管制之所運用的管制方法、管理機制相關法令等內涵予以說明，進而就現行都市計畫農業區土地使用管制概況作全面性了解。本章旨在對都市計畫農業區土地使用管制法規面上為深入探討，並就實施情形與概況做綜合分析。第四章對竹南頭份都市計畫農業區採現況實地調查方式，深入研究核心，希望透過實證的調查分析，試圖發掘本農業區土地使用管制上所產生的相關問題。第五章續行第四章研究結果所獲致問題，以深入訪談方式，輔以專家學意見及建議，具體歸納出都市計畫農業區土地使用管制之課題，針對課題內容研擬改進對策。第六章結論與建議
本研究經由文獻與理論回顧，建立以土地使用管制為中心之理論架構，並以此為基礎，進行都市計畫農業區現況調查之實證分析，在此研究過程發現，都市計畫農業區未依管制規定而違規使用情形嚴重，歸納出（一）法規制定過程欠缺宏觀及長遠概念（二）農業區功能之模糊（三）主管機關權責劃分不清（四）管制標準之僵化性（五）未經詳細規劃之容許使用項目大舉進駐（六）公權力不彰取締不力等六項結論，針對上述結論做出建議，以作為主管機關法規訂定與執行上之參考。
關鍵詞 土地使用管制 都市計畫 農業區
Abstract
Due to the fact that urban agricultural zones are located on the edge of cities, the economies of the said zones tend to be diversified along with the concentration of the urban population as well as the rapid development of industry and commerce. In order to respond to these changes, the role played by urban agricultural zones become complicated and diversified, and their original positioning of agricultural production are shaken as a result. Under the framework of the setting and implementation of the land-use control, if the landowners (or land users) of the agricultural zones are allowed only to use their land for agricultural production, this will not only cause waste of the resources allocation, but also cause possibly delay of urban development and economic stagnation, which eventually affect the whole economic development of a country. Undoubtedly the situation of non-agricultural utilization in urban agricultural zones is getting worse. And it is worth thinking that rigid land-use control regulations may not be the only effective method indeed. Rather, we should make flexible adjustments in accordance with different attributes of urban agricultural zones, so that each and every urban agricultural zone can utilized properly. By doing so, not only rapid urbanization can be balanced and supplemented, but also agricultural function be maintained. And the goal of reasonable utilization of agricultural zones can therefore be reached.
This research is a case study of the urban agricultural zone of Junan township and Toufen township in Miaoli County. It was conducted by investigating and analyzing the current land-use control, along with in-depth interviews with experts and scholars. After summing up the results of the investigation and interviews, we then discussed both the legal aspect and current status of the land-use control regulations. Through this research, we hope to excavate and analyze related problems and issues, and further propose related topics as well as their solutions in fields of control direction, control content, control system and control implementation. This paper is divided into 6 chapters and 19 subchapters as follows:
Chapter one explains the motive, goal, scope, content, method, procedure and framework of research. Chapter two is divided into 2 subchapters. It relates to the
foundation of this research including the collection of related documentations, theories, and references of statements by experts and scholars. Chapter three explains control methods, related laws and regulations currently enforced in urban agricultural zones in Taiwan, followed by comprehensive understanding of current land-use control in urban agricultural zones. It aims to further explore regulations concerning land-use control in urban agricultural zones, and analyzes fully the general situation and implementation. Chapter four describes the adoption of in-the field investigation of current status in urban agricultural zone of Junan township, in hope that related problems caused by land-use control in the said agricultural land can be targeted by means of empirical investigation and analysis. Chapter five, in pursuit of the research findings and questions of Chapter four, tries to induce the issues and solutions of land-use in urban agricultural zone through in-depth interviews as well as opinions and suggestions by experts and scholars. Chapter six presents conclusion and suggestions.
This research tries to establish theoretical framework centered on land-use control by means of retrospect on documentation and theory. Based on the said framework, empirical analysis on investigation of current status in urban agricultural zones is done, and the findings shows that the situation of illegal land-use in urban agricultural zones appear serious. The reason for the illegal land-use can be induced as follows: (1) lack of panoramaic and long tern concept in law-making process, (2) ambiguity of function of agricultural zone, (3) unclear division of power and responsibility among authorities in charge, (4) rigidity of control standard, (5) many items permitted for usage allowed without detailed planning, (6) ineffectiveness of official control and banning. It is hoped that the suggestions based on the above conclusion can be reference for the authorities in future law-making and policy implementation.
Key words: land-use control, Urban Planning, agricultural zone. |
