都市更新事業計畫確定程序之法制分析–以聽證制度為中心

Law and Economic Analysis on Administrative Hearing of the Urban Renewal Business Plan-Finalizing Procedure

余建廷(Chien-Ting Yu)

指導教授 ： 曾明遜

國立臺北大學/公共事務學院/不動產與城鄉環境學系/碩士(2012年)

摘要

都市發展乃一有機的成長過程，當都市發展至一定程度，必然產生實質環境老化，都市機能衰頹之現象。因此，為了追求高品質的都市生活並強化都市機能，透過都市更新之手段促進市中心地區的活化與再發展，乃有其必要。近年來，隨著政經結構的變遷及行政機關權責的下放，愈來愈多的更新案係由民間力量主導，惟都市更新係以增進公共利益為首要目的，縱使政府退居輔助性的監督角色，個別更新案是否合法、合理，仍是由行政機關為最終局之判斷，因而不免受到民意之挑戰，尤其決策過程的不透明，更常被指摘為黑箱作業或閉門造車。對此，考量實施都市更新事業影響人民權益至深且鉅，如果能適當地在行政機關的決策過程中導入民眾參與程序，不但能增加人民對政府之信賴，亦能強化行政決策的正當性。然現行都市更新條例有關民眾參與制度是否完善？其規範能否保護相關權利人的權益等課題皆欠缺文獻之深入探討。
是以，本研究先回顧行政計畫及聽證權等有關民眾參與制度之背景及其法令規範；並以此為理論基礎，參考對民眾參與程序有較完善規範的行政程序法，建構出以聽證程序為核心理念的都市更新事業計畫確定程序；再從法律經濟的外部觀點，分析理性的土地及合法建築物所有權人在互依成本最小的考量下，是否會同意本研究所建構的都市更新事業計畫確定程序。
研究發現，現行都市更新條例對於所有更新案均要求踐行相同的公聽會程序是無效率的法律規範，且亦無益於降低交易成本之發生；而應基於比例原則，依更新單元範圍內土地及合法建築物所有權人同意比例之高低，亦即承受互依成本之多寡來決定程序保障規範之密度。因此，本研究建議，行政機關應按實施者擬訂都市更新事業計畫報核時土地及合法建築物所有權人同意比例之高低賦予不同的程序參與權，才能體現兼具「公平」與「效率」的正義觀。

關鍵字

行政計畫 ； 都市更新事業計畫 ； 計畫確定程序 ； 聽證程序 ； 公聽會

並列摘要

Urban development is a kind of organic growth and process. When urban development is getting mature, aging of the substantial environment and obsolescence of the urban functions will definitely occur. Hence, for the purpose of pursuing high-quality urban living environment and enhancing urban functions, it is necessary to vitalize and re-develop CBD(central business district) through urban renewal. In recent years, with the change of the political and economical structure and the devolution of the administrative authority, more and more renewal cases are led by civil organizations. Only urban renewal is exceptional. Since urban renewal is stipulated for the purpose of increasing the public interests, although the government plays the role of supervisor, the legality and rationality for some renewal cases are still determined by the administrative organizations. Hence, the final decision would naturally be queried by the public. Also, for those cases without transparency during the decision-making process, they are referred as black-box operation. Therefore, with the consideration of the substantial influence of urban renewal business to human beings’ rights and interests, if the public can participate in the process of the decision-making made by the administrative organizations, the reliability from the public to the government will increase and the validity of the administrative decision will be further enhanced. However, due to the insufficiency of the historical documents, the maturity of the public’s participation in the urban renewal business system and if the right and the interest of an obligee is properly protected by the regulations can be further conferred.
Firstly, this study reviews the background and related laws and regulations regarding the public-participation system under the administrative planning and rights to be hearing. On the basis of the above theory, the Administrative Procedure Act with the completed regulations on the public participation process is referred to establish the confirmed procedure for urban renewal business plan upon the core concept of hearing procedure. Secondly, from the point of view of economics of Law, with the analysis of minimizing the expected interdependence-cost (external costs plus decision-making costs), if the rational owners of private lands and private legal buildings will agree the confirmed procedure of urban renewal business plan established by this study.
In this study, it is found that current urban renewal regulations stipulate that all renewal cases are required to be executed the same public hearing, which is regarding as an inefficient legal regulation and no use to lower the transaction costs. Hence, the percentage of agreement from owners of private lands and private legal buildings within the renewal unit (i.e. the number of the carried interdependence-cost) should be considered to determine the intensity of the procedure guarantee. Hence, this study suggests that when the executors draft the urban renewal business, the administrative organizations should grant different level of participation rights based on the percentage of agreement from owners of private lands and private legal buildings so as to realize the concepts of justice – “fairness” and “efficiency”.

並列關鍵字

administrative planning ； urban renewal business plan ； plan-finalizing procedure ； public hearing ； hearing proceeding

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