近年來為配合重大建設之開發如設置科學園區、國立大學分部設校計畫等土地開發，政府機關多按區域計畫法第15條之2規定以申請開發許可方式辦理農地之變更使用。於是大批農地變更為建築用地、工業用地或特定目的事業用地使用之情形屢見不鮮。如此大型之開發案雖經整體規劃，但規劃過程中僅考量開發案基地內本身之條件，卻忽視對週遭之環境或相關計畫之協調與整合，以致於不僅造成農地大量流失外，亦對整體環境品質之維護造成嚴重影響。 目前非都市土地開發管理在實務操作的面向上，似呈現開發許可制度並未考慮區域計畫精神、制度設計未考慮層級、各層級計畫之間的指導或承接關係普遍存在欠缺適當的聯繫機制、個案變更審議過程中未與國土規劃相連結且易受到政治影響、涉及變更農地使用時僅針對個案審議未考量是否影響周邊環境、農業主管機關對於優良農地保護及審查機制不足、開發方式太縱容個案開發許可、僅有量之需求但無質之要求、民眾事先參與之管道欠缺等之缺點，均有待探討謀求解決之道。 本文以土地使用計畫審議之合理性為主軸，應用永續發展中環境、經濟和公平（environment, economy, and equity）三個E之概念與區域計畫法第15條之2於國土利用係屬適當而合理之原則，探討開發許可中，農牧用地變更審議之規範與執行情形及民眾參與之方式，並藉由對專家學者、當地居民、公部門與相關組織之深入訪談及個案綜合分析結果，加以檢視與研討，確認目前非都市土地農牧用地變更審議執行上遭遇之課題，最後針對各課題研提改善策略與配套措施，以供政府未來執行非都市土地農牧用地變更審議政策之參考，期能達到農地環境資源合理利用之目標。 / In recent years, for co-operating the development of significant construction, like establishment of science parks, the national university branch and so on, the Government applies for the development permission to change the farmland use according to article 15-2 in Regional Plan Act. Large quantities of farmland are often changed to construction land, industry land or special-purpose land. So large-scale land development cases are planned comprehensively, and conditions of developed land base are considered in the planning process. Actually, the coordination and conformity to the environment or related plan are neglected. This not only causes the massive lost farmland, but also influences maintenance of the overall environment quality seriously. At present, in the non-urban land development management in the practice operation, the spirit of regional plan is not considered in the development permission institution. The Government do not considered the levels in the institution design. It is short of the suitable link mechanism in the instruction or continuation between plans in various levels. In the examination process of land-change cases, the cases are not linked to the national land planning, and easily influenced by the political power. When involving the farmland conversion, only the case itself is examined, but the effects on the peripheral environment are not considered. The agricultural agency lacks the superior farmland protection and examination mechanism. In the development way, the Government too tolerates the case development permission, and only has demand of the quantity without request for the quality. Besides, public participation prior to examination process is lacked. Above shortcomings should be discussed and solved. This article takes the rationality of land use plan examination as the main axle. It applies the concepts of three Es including environment, economy, and equity in the sustainable development, and adopts the principle of suitable and reasonable national land use in article 15-2 in Regional Plan Act. It discusses the standards and the situations of examination in agricultural land conversion, and the way of public participation in development permission. According to the in-depth Interviews of experts, local residents, the government agency and related organization and the results of cases study, it inspects and confirms present layout problems of examination in agricultural land conversion of non-urban land. Finally, it proposes the improvement strategies and the coordinated measures for various problems to offer references to the governmental policy in the future for achieving the goal of the reasonable use of farmland environment resources.

我國為配合加入WTO，紓緩日後大量農產品開放進口，對本土農地利用管理與農業生產所帶來的衝擊，政府乃大幅度修正農業發展條例（以下簡稱農發條例），以為因應。該條例及配套法案業於民國八十九年一月四日、六日及十三日經立法院三讀通過，並由總統於同年一月二十六日公布施行。本次農發條例之修正要點，在農地政策方面，主要側重於農地合理的利用、有效地管理與適當的釋出，其中最大的轉變在於調整為「放寬農地農有，落實農地農用」原則，不再限制農地移轉承受人之身份與資格，並有條件地許可農企業法人承受農地。這樣的變革，旨在建立更為開放競爭的耕地買賣市場，增進耕地的流動性，以利農業經營者取得耕地，調整農業經營結構，應值贊同。然而，條文內容有無疏漏不妥？仍有待深入檢討；條文原則性的規定能否落實？尚待相關法令的配合修訂，方能儘速建立合理農地利用、管理與釋出機制，以確保我國的農業發展。 　　緣此，本研究乃就農發條例之研修條文內容，深入探析農地政策與移轉規定之轉變，同時藉由實地調查（問卷調查與深度訪談）及拜訪農政等單位，以瞭解移轉制度變遷之實施現況及其對農業經營之影響程度，並訪察農業經營者之意向及博採各方之想法，據以確實地檢視現行農地移轉制度有關之爭議與問題，再提出研修現行條文、修訂行政命令及研議配合措施等改進意見，冀能有助於促進農地合理利用，並供後續法律修正、執行之參考。最後，再綜合本研究之成果，推衍以下結論： 　　一、調整農地農有制度係時勢潮流，農地農用管理機制應詳加落實。 　　二、實證調查發現，受訪者大抵認同目前農地移轉制度之變革規定，惟對促進農地流動及帶動農業升級助益不大。 　　三、引進農企業法人承受耕地之成效不彰，且牽涉法令繁多，亟待整合修訂。 　　四、制度規則未能公平提供誘因，且未能有效減低執行面之不確定性，應儘速檢討改進並確實執行之。 　　五、農民與農企業法人普遍欠缺對相關法令資訊的瞭解，應加強相關人員之專業訓練與宣傳輔導。 　　此外，在研究過程中，發現仍有相關課題有待未來後續研究，以促使農地更有效利用管理，並能確保農業永續發展，建議如下： 　　一、健全農企業法人承受耕地之管理制度。 　　二、建構重要農業區之區分與保護機制。 　　三、進一步研究農業產銷班與農地利用之關聯性。 / For joining WTO and moderating the impact of the import of agricultural products on agricultural lands use and, management and production, our government reacted by revising the Agricultural Development Act (ADA). The ADA has been revised by the Legislative Yuan on January 4 and promulgated by the Presidential Decree on January 26, 2000. The main point of the revision is to emphasis on reasonable farmland uses, effective management and adequate release of the land regulations in the agricultural policy. The main change is to adjust ADA’s principle from “the right to own and use farmland to be limited to the farmer” to “the release of the restriction on farmland transferee and realization of the substantial farmland uses.” The revision does no longer set a limit to the status and qualification of transferees and permits the transferable rights of agribusiness on some certain conditions. It is approved that the revision is to establish a more open and competitive arable land market, to improve the liquidity of arable lands, to facilitate the acquirement of arable lands for agribusiness, and to adjust the agricultural production structure. However, we should review the completeness and realization of the revised ADA after the promulgation in order to assure the agricultural development. 　　Therefore, the main purpose of this thesis is to probe into the change of the agricultural land policy and transfer regulation from the provisions of the revised ADA, examine the exercising of transfer system change and its influence on agricultural operation, investigate the intention of agricultural managers for reviewing the relative debates and issues, and then offer some advice as references of revision in the future. The conclusion is described as follows: 　　1.It is a trend of the times to adjust the transfer system that the right to own and use farmland is limited to the farmer, and the mechanism of assuring the substantial farmland uses should be realized. 　　2.From empirical research, the interviewees almost agree to the new agricultural land transfer system, but think that it is not useful for accelerating the liquidity and promoting the level of agricultural industry. 　　3.It is not significant on introducing agribusiness to be the transferee of arable lands, and it is necessary for our government to integrate too many relative and complicated laws. 　　4.We should review and implement the revised ADA because the rules themselves cannot provide fair incentives and effectively reduce the uncertainty from exercising it. 　　5.Farmers and agribusinesses lack the knowledge of relative laws, so the government should enhance them the professional training and give them consultant service. 　　In addition, from this research, we also found that some issues need to be studied for effective management of agricultural lands and sustainable development of agricultural industry in the future. 　　1.How to sound the management institution when agribusinesses want to be the transferee of arable lands. 　　2.How to designate important agricultural zones and establish protection mechanism. 　　3.Study the correlation between the agricultural product marketing class and agricultural land uses.