反思私有既成道路之規範及實務－以釋字第400號以來之發展為中心論述

根據民國85年之統計，全國既成道路面積高達4.6萬公頃，而經內政部於民國102年之統計，全國之公共設施保留地也僅約2萬餘公頃，由此可知既成道路問題之嚴重性。面對此一財產權保障之重要課題，釋字第400號解釋將其定性為國家行使公權力，造成私有財產權的犧牲，故應依法律予以補償。然經過20多年，全國既成道路問題仍然未見寸進，嚴重侵蝕憲法應保障人民財產權之意旨。 20多年來，行政機關曾有研擬相關措施，以期開始處理既成道路問題，如補助地方政府取得既成道路、容積移轉、以財物採購方式購買等，交通部亦曾規定辦理工程時一併辦理既成道路之取得，但最終皆未獲得相關進展；同一時期內，立法院亦曾經提出8個條例草案，希望藉由專法來一次解決既成道路問題，但最終也因為財政支出之疑慮，並無法律能夠通過。根據本研究之結果，發現過去皆將既成道路視為國家永久取得私人土地之使用權，但若以工程技術規範觀之，既成道路實有其壽命年限，國家若欲進行既成道路改善工程，則應重新取得該等土地之合法使用權源。因此，若要解決既成道路問題，本文認為不應採通案性處理，而仍然要回到每個個案當中，當既成道路需要重新施工以維護公共設施之正常服務狀態時，由於該等工程屬性為「臨時性之公共建設工程」，此時道路管理機關應重新進行土地權屬檢視，並依照土地徵收條例第58條規定將工程範圍內之土地辦理土地徵用，此時方能真正面對並解決既成道路問題。

關鍵字

既成道路；第400號解釋；財產權保障；土地徵收；土地徵用

並列摘要

According to the statistics(1996), the area of Privately-Owned Existing Roads is as high as 46,000 hectares, and according to the statistics(2003), the Private Reservation Land in the whole country is only about 20,000 hectares. From this we can see the seriousness of the problem of Privately-Owned Existing Roads. Faced with this important issue of property rights protection, Interpretation No. 400 defines it as the state exercising public power, resulting in the sacrifice of private property rights, so it should be compensated in accordance with the law. However, after more than 20 years, there is still no progress in the Privately-Owned Existing Roads problem, which seriously erodes the intent of the Constitution to protect people's property rights. For more than 20 years, administrative agencies have studied and formulated relevant measures in order to begin to deal with the problem of Privately-Owned Existing Roads, such as “subsidizing local governments to obtain Privately-Owned Existing Roads”, “transferring volumes”, “purchasing through property procurement”, etc. The Ministry of Communications has also stipulated that the acquisition of existing roads should be handled together with the project, but no relevant progress has been made in the end; during the same period, the Legislative Yuan also proposed 8 bills, hoping to solve the problem of Privately-Owned Existing Roads through special laws, but in the end it was also due to financial problems, no law can be passed. According to the results of this study, we found that in the past, existing roads were regarded as permanent acquisition of land use rights by the state. However, from the perspective of engineering technology, existing roads do have a lifespan. Therefore, if the country intends to carry out existing road improvement projects, it should re-acquire the legal source of the right to use the land. Therefore, if we want to solve this problem, we still need to deal with it on a case-by-case basis. When the Privately-Owned Existing Roads needs to be re-constructed to maintain the normal service status of public facilities, the project is a "temporary public construction project". At this time, the road management agency should re-examine the land ownership and requisition the land within the scope of the project in accordance with Article 58 of the Land Expropriation Regulations. Only then can we truly face and solve the problems of Privately-Owned Existing Roads.