論BOT制度的土地徵收與使用

A Study on Expropriation and Use of Land in BOT Projects

蘇南(Nan Su) ； 陳昆成(Kuen-Cherng Chern)

《財產法暨經濟法》 31期 (2012/09) Pp. 45-102

https://doi.org/10.29825/PELJ.201209.0002

摘要

近年來世界上諸多先進國家在均面臨財政窘困之情形，惟公共建設與社會福利支出卻係維持國家發展所必須，是以公私協力辦理公共建設之方式，即為諸多國家所參酌之重要方式。我國於2000年起施行「促進民間參與公共建設法」，該法中對政府引進民間資金，採公私協力辦理公共建設時的各階段內容均予規範，BOT制度則為公私協力辦理公共建設之典型，特許投資公司之成立、民間投資公司與政府簽訂之投資契約、對所興辦之公共建設的興建、營運與移轉等均予詳細規定。然而採行BOT模式時，公共建設所需用地仍需政府徵收土地以提供投資廠商使用，此部分為政府應辦事項殆無疑義，惟徵收土地難免引起社會輿論之嘩然，質疑政府是否有假藉BOT案之名義，將徵收所得之土地再行轉交財團使用，而有圖利財團之嫌疑。尤其土地乃人民財產權，應受憲法基本權保障，復以近年來國土規劃、永續環境等議題興盛，更使得社會各界對於土地徵收的正當性感到質疑。本文將從土地徵收的合理性及必要性探討我國土地徵收制度，尤其是在BOT制度之應用，蓋BOT制度涉及外部經濟效益，為補償BOT案件自償率，須透過賦予一定期間之特許經營權、土地開發及附屬事業經營權重新界定BOT的財產權。又BOT案得採區段徵收方式，擴大公共建設之所需用地而增加土地徵收範圍，其是否符合比例原則與公共利益要求，均有待評斷。幸而我國新修正的土地徵收條例於2012年1月經總統公布，要求除依舊法之協議價購先行之外，土地徵收須依市價徵收以為其損失補償。此外，亦增加對於環境保護、國土永續發展的徵收審查。本文以為，在促進民間參與公共建設法與新修法通過之土地徵收條例運作下，其執行面問題將得減少，而對BOT案土地徵收之正當性與合理性有所助益；惟徵地機關若能加強與民間溝通交流，以聽取各方意見折衝整合，當能更為降低徵收時地主抗爭情形，而吸引民間資金與經營模式參與公共建設之BOT案，能在顧及私有財產權保障下促進公共利益，如此將得更有益於我國產業之發展。

關鍵字

土地徵收 ； 區段徵收 ； 土地 ； BOT ； 必要性 ； 合理性 ； 財產權

並列摘要

In recent years, the Public-Private-Partnership on public construction is promote actively by the government of R.O.C. and advanced countries in the world, which financial budget for public construction are decreased gradually for the reason of the increase of social welfare expenditure increasing. The ”Promotion of Private Partnership participation in Public Construction” is promoted by the government in Taiwan, which introduces a large number of private capitals, and provides the contents of various stages of BOT, this legal system of the establishment of Concession Corporation, and the construction, operation and transfer of public construction in investment contract. However, the government is the land expropriator in BOT project because of the expropriation is the government's business, this would be no doubt. That is often doubted reasonable profit the investor of BOT project. Furthermore, the land is belonged to property right of private in law, which must be protected by the Constitution Law in R.O.C. legal system. Nowadays, the issues of land planning, sustainable environment in BOT project are attentive by social community. The purpose of this paper is to investigate the reasonable basis and public necessity of the eminent domain in BOT model. Furthermore, BOT project is closely related to the external economic benefits in the national industrial development, then, in order to compensate the self-liquidating rate of investment, the government authorities must charter the concession period, land development rights, and ancillary enterprises the right to operate for redefine property rights in BOT project. Beside the general expropriation, the zone expropriation is also adopted to expand the area of taking land in BOT project, whether that meets the Proportionality principle and Public interest are often argued by the landowner and people. Fortunately, the Land Expropriation Ordinance is amended in January, 2012, that provides the eminent domain must base on market price after unable to reach agreement the price purchase. Even the environment protection and sustainable of land development are reviewed in expropriation procedure. In this article, our point is that doubts of eminent domain will decrease according to the amending Land expropriation ordinance, and it is help for the legitimacy and rationality of the expropriation review in BOT project. This article suggests that disputes and against of the landowner and people may be significantly reduced by the effective communication between expropriator and expropriate. As a result, the expropriation will be able to attract private capital and business model to the promotion of public construction in BOT with the public interest and private property rights protection.

並列關鍵字

Eminent domain ； Zone expropriation ； Land ； BOT ； Necessity ； Reasonable ； Property