農業用地變更使用方式之比較分析-以澎湖縣為例

本研究以農業用地變更使用方式的比較分析探討為重點，研究主題包括農地是否變更開發為都市用地，以及應以何種方式開發，對社會國家才比較有利。台灣自從加入WTO後，政府輔導許多農地休耕補助形成國家財政一筆負擔，農業產值在我國各項產業比重逐漸降低，農地作為農業栽種使用也逐年遞減，產生了廢耕及少耕的多餘農地。同時農業以外的其他產業對農地土地需求強烈，使得需要釋出農地開發作為其他使用，方符合土地利用的最適效益。本研究以澎湖縣為例來加以探討。澎湖縣因地處偏遠離島，與台灣本島隔著臺灣海峽，氣候炎熱，鮮少下雨，整年蒸發量大於雨水量，水源不足，自耕農稀少，農產品競爭市場全由外縣市供應。然而，澎湖縣非都市土地一般農業區農牧用地或養殖用地興建住宅計畫暨變更編定審查作業要點產生起源是藉由開放在農地申請建物，期許讓澎湖縣無自有住宅的縣民，終其一生能以自有農地或是有一個機會能夠以較低廉的土地成本，建造屬於自己的住宅房舍，讓人人都能擁有房子。澎湖縣農業用地變更他用，尤其是近年由農地變更為建地使用申請者眾，其實除了農變建制度此種屬於開發許可制外，尚有都市更新、市地重劃及區段徵收這三種方式在澎湖均有實施。本研究探討農業用地變更使用的四種方式，並探討變更使用的方式何者相較為佳，以及澎湖縣的農地可以如何妥善地利用。研究結果顯示，澎湖縣可使用耕種之農地明顯大多是廢耕地或休耕地，且缺乏完善的土地整體規劃構想，應採取大規模的都市更新計畫如區段徵收和市地重劃，才能將外部性利益內部化，農地變更使用後所產生的利潤和經濟效益，方符合用於社會需求的最大利益化，才會達到土地資源最佳的利用配置效益。

關鍵字

農地開發；都市更新；市地重劃；開發許可制；區段徵收

並列摘要

This study focuses on the comparative analysis of the changes in the use of agricultural land. The research topics include whether the development of agricultural land is changed to urban land, and how it should be developed, which is beneficial to the social countries. Since Taiwan’s accession to the WTO, the government has subsidized many agricultural land fallow subsidies to form a national financial burden. The proportion of agricultural output value in various industries in China has gradually decreased. The use of agricultural land as agricultural plants has also been declining year by year, resulting in redundant farmland with waste tillage and less tillage. At the same time, other industries other than agriculture have strong demand for farmland land, which makes it necessary to release farmland development as other uses, in line with the most appropriate benefits of the land. This study takes Penghu County as an example to explore. Penghu County is far away from the island, and the Taiwan Strait is separated from the Taiwan Strait. The climate is hot and there is little rain. The evaporation is greater than the amount of rain throughout the year. The water source is insufficient, the farmers are scarce, and the agricultural product competition market is monopolized by the foreign counties. However, Penghu County's non-urban land general agricultural area agricultural and pasture land or aquaculture land construction residential plan and change preparation review work origins from the opening of the application for construction in the agricultural land, the county people who are expected to have their own residence in Penghu County, Throughout his life, he can build his own residential house with his own farmland or have an opportunity to build a house at a lower cost. The use of agricultural land in Penghu County has been changed, especially in recent years, from the conversion of agricultural land to the application of construction land. In fact, in addition to the agricultural transformation system, this is a development permit system, there are urban renewal, city redrawing and section collection. Three ways are implemented in Penghu. This study explores four ways to change the use of agricultural land, and explores ways to change the way it is used, and how well agricultural land in Penghu County can be used. The results show that the agricultural land that can be used in Penghu County is mostly abandoned or fallow land, and there is no comprehensive land planning plan. Large-scale urban renewal plans such as section expropriation and city rezoning should be adopted. The internalization of external interests, the profit and economic benefits generated by the change of agricultural land, in line with the maximum benefits for social needs, will achieve the best utilization of land resources.