以土地使用限制補償觀點探討桃園埤塘資源保存維護策略之研究

A Study on Conservation Strategies of Taoyuan Ponds Resources from the Aspect of Land Use Restriction and Compensation Theory

黃浩珽(Hao-Ting Huang)

指導教授 ： 彭光輝

國立臺北科技大學/設計學院/建築與都市設計研究所/碩士(2007年)

https://doi.org/10.6841/NTUT.2007.00109

摘要

為了環保及公益等目的，政府在相關法規中之土地使用限制規定，往往在未剝奪所有權的情況下，影響了土地所有權人的開發、使用行為。若將土地使用限制視為所有權人財產權的社會義務，而不對其受影響的權益予以考量，則很可能因土地所有權人的反對甚至抗爭而造成更大的社會成本。在桃園地區，源自農田水利而開鑿出之埤塘，形成了亟具特色的景觀，使桃園縣素有「千塘之縣」之美名，然而隨著社會轉型及開發建設，埤塘快速消失中。感於埤塘的獨特珍貴，及其保存維護之刻不容緩，縣府推動「桃園縣埤塘水圳保存及獎勵新生利用自治條例(草案)」之立法。該自治條例為管制埤塘不得任意廢止，訂有「提高地主申請埤塘廢止之通過門檻」的機制，然而據統計埤塘土地大多為私人所有，且最主要所有權人—農田水利會，質疑該機制對其財產權恐造成限制，而應考量訂定配套性補償措施，該質疑甚而反對之態度亦對法令推動造成影響。本研究以上述埤塘土地所有權人之質疑作為研究出發點，希望深入探討該埤塘資源保存維護策略所形成之土地使用限制對私有所有權人財產權影響之情況為何？該土地使用限制是否應予以補償？如需補償是否有可因應之補償機制？相關利害關係人對此補償機制之觀感為何？等問題。
本研究首先採取文獻探討之方式進行研究，藉由財產權、土地使用限制補償等文獻理論探討，歸結出之「對象」、「目的」及「影響」三個觀點面向，作為判斷土地使用限制是否達財產權「特別犧牲」而應予補償之參考基準。以此觀點對埤塘土地使用限制作綜合分析後，認為已造成財產權之「特別犧牲」，應考量予以補償，因此依據相關法令內容歸結出「實質經費獎勵補助」、「土地檢討與變更」及「容積移轉」等補償機制，並透過深度訪談之方式，從而分析了解不同立場之相關利害關係人對該土地使用限制補償機制的認知與共識差距。
本研究認為以上補償機制已提供了較多元的選項，應可在平等互利之前提下加強對實際案例作操作，但在協商補償機制時，應堅守公共利益及社會公平正義的立場。文末並提出未來實際執行各補償機制之考量事項、應建立起平等互信且互利之公私協力合作平台、農田水利會以經濟的角度對所擁有資產之活化作成本效益之評估，以及應定期對埤塘資源進行監測以避免違規填埋埤塘之狀況等建議。

關鍵字

財產權 ； 土地使用限制 ； 補償 ； 桃園埤塘

並列摘要

For the purpose of environmental protection and public welfare, land use restriction rules made by the government often affect landowners’ developmental and using behavior under the situation of not depriving their ownership. If taking land use restriction as social liability of landowners’ property rights and not considerate the influenced rights, it is possible to make huger societal capital because of the opposition and protest of landowners. In Taoyuan region, Taoyuan ponds developed for irrigation form an extremely characteristic landscape, and make Taoyuan County award the name” The County with Thousand Ponds ”. However, following the societal transformation and developmental construction, Taoyuan ponds are disappearing fast. For the unique and treasurable character of Taoyuan ponds, and the urgency of conservation, Taoyuan Prefecture Government is making ” Self-Government Ordinance Governing the Conservation and Renewal of Taoyuan Ponds and Canals”. The ordinance makes the system” raising the passing threshold of landowners’ application for ponds abolishment” for controlling the arbitrary abolishment to Taoyuan ponds. Nevertheless according to the statistics, lands of Taoyuan ponds are mostly private, and the major owner--Irrigation Association have queried that the system will limit their property rights and should formulate appropriate compensatory measures. The queries more than opposite attitudes also affect the promotion of the ordinance. The study is based on above-mentioned queries of landowners, and hopes to enquire deeply to these following questions:
1.How does the land use restriction made by conservation strategies of Taoyuan ponds affect the private owners’ property rights?
2.Should the land use restriction provide compensation?
3.If should, is there any possible appropriate compensatory system?
4.What are the concerns’ opinions to the compensatory system?
First of all, the study takes the way of literature review to start researching, and attributes to three aspects, “object”, “purpose” and “influence” by investigating the literature theories of property rights and land-using-compensation, which will be the judgment to the reference standard of property rights “ special sacrifice” whether the land use restriction reaching it or not. Based on the point of view to synthesizing analyses the land use restriction of ponds, the study considers which has already caused the special sacrifice of property rights, Taoyuan Prefecture Government should think about providing compensation. As a result, according to these correlative laws attributing to these compensatory systems “financial incentive and subsidy”, “land-use review and change” and ” transfer development rights”. By depth interview, the study can understand the gap between different position of concern’s cognition and the common view to these compensatory systems.
The study thinks that the above-mentioned compensation systems have already provided more variety of decisions which can work strongly to the practical cases under the presupposition of equal rights. However, when discussing compensation, the government should hold the state of public welfare and equity. At the end of the study, it advanced some suggestions. Take for some examples. First, it offers reference materials to practice every compensatory system in the future. Second, we should establish mutual trust and advantage of public-private partnerships platform. Third, Irrigation Association estimates renewal of their property on cost benefit by economic view. Finally, the government should investigate to ponds resources periodically to avoid the situation of abolishing ponds against laws.

並列關鍵字

property rights ； land use restriction ； compensation ； Taoyuan ponds

參考文獻

[9] Kahn, J.R., The Economic Approach to Environmental and Natural Resources，1995.

[10] Beatley, T., Principles of Ethical Land Use, Ethical Land use: Principles of Policy and Planning，1999.

[27] 青境工程顧問有限公司，2005，埤圳新生工程示範點整體發展計畫，桃園，桃園縣政府。

書籍

[1] 尤重道，土地徵收補償實務，台北：永然文化出版公司，2001。