地方自治與直轄市立法－以兩岸土地使用管制為例

Local Self-Government and Special Municipality Legislation: Example of Urban Land Use Control in Taiwan and China

李福隆(Fu-Lung Lee)

《城市學學刊》 4卷2期 (2013/09) Pp. 71-155

摘要

隨著人類生活從原始自給自足走向漁農及工業時代，生活圈也從鄉村移往城市，各地城市愈來愈多、愈來愈大，其發展狀況對全世界亦愈顯重要，因此城市發展成為一國社會文明程度的重要指標。在我國，現代社會下直轄市在組織、經濟、文化等各方面的發展，比其他縣市、鄉鎮市更具繁重的行政職責，以致直轄市逐漸成為我國社會內政治經濟、法制、教育、文化的中心。在地方自治法制化後取得重要地位的直轄市，一方面具有人口密集、分工精細、社會問題複雜等特徵，另一方面在面對城鄉融合過程，實應確實行使其「自治立法權」，以利城市治理及鄉村城市化，故直轄市立法逐漸在地方立法中占有重要地位。性質上，直轄市立法為一種地方立法，而直轄市政府則屬於地方自治團體。在中央與地方之間事權劃分或垂直分工下，直轄市政府逐漸具有專屬事務的固有權限，復依「地方制度法」第25、29條規定直轄市政府被授與地方立法權，可見直轄市政府得依法行使其地方立法權。面對縣市合併後城鄉融合所衍生的挑戰及困境，本文先從地方自治（local self-government）觀點探討直轄市立法的概念、原則，再以城市發展（city development）觀點歸納中央與地方立法分工關係下直轄市立法的主要類型，最後指出直轄市應該確實行使地方立法權，以因應五都之後城市環境的變遷，並建議縣市合併後各直轄市政府、議會等立法主體應該正確瞭解直轄市立法的概念及相關議題，一方面檢視中央政府與直轄市政府的應有關係及政經分工，以及直轄市政府困境等重要因素，進而在基本型的補充立法之外建立創制型的環境立法及特色型的文化立法例證。

關鍵字

地方自治 ； 直轄市立法 ； 環境立法 ； 文化立法 ； 土地使用管制

並列摘要

With the move of human life from original self-sufficiency to fisheries and industrial age, living area also move from rural to urban, the city around all countries more and more, getting bigger, and its development is more important to the world. So the urban development became an important indicator of the degree of social civilization in a country. In modern society of Taiwan, special municipalities had more onerous administrative duties than other counties and townships in aspects of organization, economy and culture development, so that special municipalities become political, economic, legal, educational and cultural center within the society. After the legalization of local self-government, special municipalities achieved an important position. On the one hand special municipalities had characteristics of population density, meticulous division of work and complicated social issue, on the other hand they should exercise self-governing legislative power to facilitate urban governance and rural urbanization in the face of urban and rural integration process. Therefore, special municipality legislation held an important position in local legislation gradually. Special municipality legislation was local legislation essentially, while special municipality government was a kind of local authorities. Under the division of affair-power or vertical division of work between central and local government, special municipality government had inherent authority of exclusive affairs gradually. And article 25 and 29 of Local Self-Government Act provided that special municipality government was granted local legislative power, and then it might legally exercise its local legislative power. Faced with the challenge and difficulty derived from integration of urban and rural after the merger of city and county, this paper explored the concept, principles of and generalized main types of special municipality legislation under the relationship of legislative authority division in view of local self-government and city development respectively. Finally we concluded that special municipalities should indeed exercise local legislative power in response to the change of urban environment. After the merger of city and county, this paper further proposed legislative bodies, such as special municipality government and city council, should correctly understand the concept of special municipality legislation and related issues. First to view proper relationship and political economy division of work of central government and special municipality government as well as the dilemma of special municipality government, and then to build up examples of creative-type environmental legislation and featured-type cultural legislation beyond complementary legislation.

並列關鍵字

local self-government ； special municipality legislation ； environmental legislation ； cultural legislation ； land use control