我國農地管制政策變遷之探討～以南投縣為例

摘要長久以來，農村土地變革即是影響我國經濟發展的重要基礎，因此，適宜的土地資源分配，可助於掌握農業經濟體系發展。農地利用經常被視為引領農業發展的經濟體系的策略性措施，當土地保持定量生產是經濟穩定或發展的重要條件時，政府經常透過管制手段確保農地數量。 1973年之前台灣地區的農地管制型態不甚明確。1973年以後，政府對國家農地的管制成立了制度性體系，規範農地的取得者除自耕農身份得取得外，也明定耕地不得分割及農舍管制建築措施。2000年政府進一步大幅度改變先前規定，除自然人均可取得農地外且放寬耕地最小面積分割及新取得者得建築農舍。2013年再度強化管制政策，明定申請農地分割時除須符合原先規定外，更須在一定限制範疇內檢附解除套繪管制文件，且農舍申請亦需審視土地確實已有過去二年經營實績。這三階段政策措施都屬於國家農地管制的範圍。由上述規定可知，我國農地管制政策從嚴厲限制型態轉變為開放式和諧的管制後再次強化使用上的限制，且發生的轉淚點在1973年、2000年及2013年。像這樣的管制為何會有三階段的轉變？本文主要論點將描述各階段發生的背景歷程及過程中造就政策變遷行為者於合法化後的影響，更期待發掘影響政治、經濟、社會三面向之間的結構性關係及其互動行為。公共政策本質對現存或生產過程中的社會價值做權威性的分配，這種權威性價值分配對於經濟體系中身處不同結構性地位的利益行為者（interest-involved actors）發生不同的影響，（蕭全政，1991）有人獲利也有人因此受害且程度有所不一樣，假如每個人都是自利行為者，則將發揮其稟賦來因應法律制度、社會結構的變遷。然而，這些利益行為者主觀性的努力與在國家經濟體系客觀的結構性要求，是促成一個政策出現、發展與變遷的根本因素，本文即在此定論中，期待透過觀察分析行為者之間互動情形與策略，以對目前農地管制政策有清晰的認識。

關鍵字

農地管制政策；農地分割；農舍興建；政策變遷

並列摘要

Abstract Since long-time, the countryside land transformation is affects our country economy development the important foundation, therefore, the suitable land resource assignment, may help in the grasping agricultural economy system development.The farmland use is regarded frequently as eagerly anticipates the agricultural development the economic system strategical measure, when the land maintenance batch production is the economy stable or the development important condition, the government penetrates the control method to guarantee the farmland quantity frequently. Before 1973 the Taiwan area farmland control state is not really clear about.After 1973, the government has established the institutional system to the national farmland control, the standard farmland obtains obtains besides the land-holding peasant status, also stipulates the cultivated land not to have to divide and the farmhouse control construction measure.In 2000 the government further large scale change formerly stipulated that, average per person may obtain the farmland also the relaxation farming minimal plane besides the nature accumulates the division and acquisition results in newly constructs the farmhouse. In 2013, the control policy was strengthened again. In addition to the original requirements when applying for the division of agricultural land, it was stipulated that the overprinting control documents should be attached within certain restricted areas, and the application for farmhouses should also be inspected for the actual performance of the past two years. These three phases of policy measures are all within the scope of national agricultural land control. May know by the above stipulation, our country farmland control policy transforms from the severe limit state after the open style harmonious control strengthens in the use once more the limit, also occurs extension tear in 1973, in 2000 and in 2013.Why can such control have three stage transformations? The this article main argument will describe in the background course and the process which various stages will occur accomplishes the policy vicissitude doer's after legalization influence, will anticipate the excavating influence politics, the economy, the society three face the between structure sexual relationship and the interaction behavior.The community policy essence makes the authority to extant or in the production process social value assignment, this kind of authority value assignment the benefit doer who places the different constitutive status regarding the economic system in (interest-involved actors) has the different influence, (Xiao Quanzheng, 1991) some people make a profit also some people therefore suffers injury also the degree has is dissimilar, if each people all are the self-interest doer, then will display its talent reason to be supposed the legal regime, the social structure vicissitude. However, these benefit doer subjective diligently with in state economy system objective constitutive property request, is facilitates a policy to appear, the development and the vicissitude basic factor, this article namely in this conclusion, anticipated the penetration observation analyzes between the doer to interact the situation and the strategy, by has the clear understanding to the present farmland control policy.