台灣地區於民國75年11月起全面實施非都市土地使用管制後，逐漸 發現因辦理使用編定當時，缺乏積極性、前瞻性及整體性之規劃，僅以 消極限制民眾自由使用土地之方式來管制，而未有積極性之計畫予以引 導土地之合理及有效使用。又長久以來，隨著經濟快速成長，國人過度 重視經濟利益，卻缺乏對土地資源應有之維護及保育，土地資源遭受到 嚴重衝擊，肇致非都市土地農牧用地違規使用的嚴重問題一直無法有效 解決，亦使得使用管制政策無法落實。此種情形，顯示欠缺有效的使用 管制機制，以及檢查工作執行力不足。緣此，本研究旨在，從非都市土 地農牧用地違規使用問題的衍生，來探討非都市土地農牧用地使用管制 機制之缺失，以及執行檢查工作成效未臻理想之癥結所在，以確定需解 決之問題。並就使用管制所產生的各項問題，研擬解決途徑，以消除使 用管制機制缺失及執行檢查工作不力等問題，進而提升非都市土地農牧 用地使用管制之成效。 故本研究乃參酌國內使用管制相關文獻及內政部地政司提供之違規 使用數據，並藉由全國執行非都市土地使用管制業務之承辦人員，對非 都市土地農牧用地違規使用的實際情況，以及政府相關單位的處理態度 與執行力之看法及意見作實證調查分析。 本研究認為違規使用查處之事權與裁罰標準不一，與違規使用稽查 與取締之執行力不足，以及公所未有專責人員執行違規檢查工作及遭受 民代關說壓力，是造成非都市土地農牧用地使用管制政策未能落實之原 因，另為解決人力及經費不足，可建置使用管制監測系統，而於研究調 查中也發現「農業發展條例」第三十一條修定喪失遏止農地違規使用之 手段。 本研究建議政府以開發許可制指導非都市土地的開發，以提升使用 管制之成效，並增訂設置「農地稽查員」之規定以落實違規使用查處工 作，以及回復「農業發展條例」第三十一條限制違規農地所有權移轉之 規定；另為便利後續管控及處分事宜應建立違規使用案件資料庫，並積 極檢討及調整現行非都市土地使用分區及編定，而於使用管制時應考量 各地區不同之特性及條件並因地制宜，以及慎重思考擬定一套完善非都 市土地農牧用地使用管制機制，並在「國土計畫法」架構下通盤檢討非 都市土地使用管制之機制，如此方能有效落實非都市土地農牧用地使用 管制政策。

台大實驗林管理處(以下簡稱林管處)認為轄內之契約林農有擅於林地從事農業使用等違規使用行為，擬對違規者加以處罰或收回其承租地；但部分違規之契約林農卻認為其利用土地的方式本是順應當地自然生物資源特性，並未破壞山坡地，且長久以來的栽種經驗早已建立起和其承租地之間的深厚情感，這種尊重自然的生產模式，理當不是破壞山坡地保育的元凶。然而，在這兩種不同思維的作用下，引發林管處和承租戶之間的衝突。按理而言，林管處秉持森林資源保育政策，意在引導林地利用的內涵與建立模式；但林農在生計與產業經營考量下，咸認林地利用自是以市場為導向，方可發揮使用權功能。然而，究竟此等權力關係的要素之間的相互作用為何?對於土地利用之影響又如何？凡此皆值得深入考察，以探究實情。 本研究藉2010年迄今以契約林地現場查勘、深度訪談和問卷調查林農、林管處承辦人員之方法，觀察當地林農對於契約林地的利用方式；另考察近數十年來林管處的經營管理政策措施、林農違規利用土地所造成之管理失靈的問題。以Walck and Strong（2001）提出的權力關係為論述中心，探析政府政策、社群的價值規範、市場經濟、財產資源等四大因素之間的相互牽扯，佐以Zoe, Jennifer and Lorraine (2011)應用需求層次概念在土地管理上的做法，考察近數十年來我國台大實驗林的經營管理政策措施，以及林地承租戶土地利用情形。用以分析林管處與契約林農在契約林地上違規利用之根源，探求林管處與契約林農對於利用契約林地的觀念差異，並探求現狀下契約林地違規使用問題的癥結。 本研究以權力關係兼採需求層次概念對於契約林地地影響模式，透過文獻分析、實地訪談及問卷分析，獲得以下結論（1）現行造林契約規範難以處理契約林地上違規利用狀況（2）造林契約目的無法兼顧保育森林與契約林農生計收入（3）契約林農無法落實保育之觀念。並依上述研究發現，本研究提出以下之政策建議（1）應盡速調整台大實驗林造林契約規範（2）有條件允許契約林地上種植非林作物（3）契約林地之管理應導入契約林農保育的概念。 / The Experimental Forest, College of Bio-Resources and Agriculture, National Taiwan University (hereafter referred to as the Experimental Forest) thinks that the contracted forestry farmers have illegal behaviors, such as the use of agriculture, and plans to give penalty to those violators or regain the lease forestlands from them. However, some of the violators consider that their land use conforms to the feature of local natural resources, and they never damage the hillside because of the intimate relationship between the long-lasting agricultural experience and the lease forestlands. In addition, this kind of production is respectful to the nature and should not be accused of destroying the conservation of hillside. Therefore, these two opposite thoughts cause the conflict between the Experimental Forest and the contracted forestry farmers. The forest resource conservation policy, which the Experimental Forest adheres to, is to lead the direction of land use and to establish a model of land use as well. However, in consideration of livelihood and forestry management, the forestry farmers argue that the lease forestlands should be market-oriented in order to operate their right of land use. Therefore, it’s worthy of further investigation about how the power relationship works between the stakeholders, as well as its influence on the land use. In order to observe the management of the forestry famers and the utilization of the lease forestlands, this study applies field study, in-depth interviews and questionnaire survey for investigating the farmers and staff members of the Experimental Forest. Furthermore, this study also reviews the management policies of the Experimental Forest in the past decades, as well as the records of illegal use and the unsuccessful management of the farmers. Based on the theory of power relationship proposed by Walck and Strong (2001), the study probes the mutual interaction of four main factors---governmental policy, community values, market economy, and property resources, and complements with the method of land management with the concept of need hierarchy by Zoe, Jennifer and Lorraine (2011). The research findings go as follows. First, it is hard to deal with the violation of illegal use on the forestlands by the present contract and regulation. Second, the purpose of afforestation cannot include both the forest conservation and the livelihood and income of the famers. Third, the contracted forestry famers are unable to implement the concept of conservation. According to the above findings, the research proposes three suggestions. First, the Experimental Forest should modify the contract and regulation as soon as possible. Second, the Experimental Forest should conditionally permit the plantation of non-forest crops. Third, the management of lease forestlands should include the ideas of conservation of lease forestlands. In the end, this study provides some facts and thoughts about this topic in hoping to improve the problems of illegal use of the lease forestlands.

我國都市土地採用土地使用分區管制制度，然而於此制度下，卻出現許多違規使用情形。而違規使用將可能破壞土地使用分區管制對社會財產權之配置，故考量整體社會福利，違規使用之問題實有必要妥善處理。 但面對違規使用，過去文獻與實務多就問題直接提出解決方式，而未討論問題肇因於制度的哪一個階段、或是制度階段之間是否存在矛盾，才進而導致違規使用，如此之解決方式將可能無法有效對症下藥，甚至產生新的問題。 又，隨著都市人口增加、商業活動趨於頻繁，住宅與商業使用在有限的土地競爭下，住宅區與商業區土地違規使用問題趨於明顯，有其必要加以重視。 因此，本研究利用住商違規使用代表個案—住宅區作不當商業違規使用之師大商圈，以及特定商業區作住宅違規使用之基隆河截彎取直地區，運用文獻歸納法，以及制度經濟之制度層次理論為基礎，將案例問題分為三階段，包含(1)制度制定：政府有限理性與機會主義之公共選擇問題、(2)制度本身：不完全制度之闕漏、(3)制度執行：政府內部與對外資訊不對稱、目標不一致之代理問題，將案例就各階段進行分析，找出問題根源；在釐清違規使用問題根源後，利用文獻之歸納找出可能解決方式，並對過去提出解決方式之應用限制加以改善，嘗試研擬個案問題之對策，並對類似之通案建立完整策略。 本研究分析結果發現 (1)師大商圈：制度本身、制度執行存在問題，而本研究針對制度本身問題提出重疊分區管制與投票式分區管制互相配合加以解決；至於制度執行問題短期應對地方政府給予監督及誘因，並可建立民眾檢舉違規使用資訊揭露之平台，改善制度環境，長期則應從改革政治機制做起。(2)基隆河截彎取直地區：制度制定、制度本身、制度執行三階段皆存在問題；由於制度制定問題既已產生，則短期內應從制度本身與制度制定階段改善，彌補制度制定之缺陷；至於制度本身問題，當前作法可採用浮動式規劃允許修改制度之限制；制度執行問題解決方式則同師大商圈。此外，本研究亦利用上述案例結果對未來通案建立完整解決對策，而本研究發現，在擬定完整對策前，必須先釐清制度之立法本意(即初始財產權賦予對象)，才能擬定一套完整對策，令不同階段制度之解決對策在應用上能相互串連、呼應。 本研究冀利用制度階段分析與解決對策之整合，嘗試建構住商違規使用問題之完整對策，以期未來能預防違規使用問題產生，或於問題產生時能有效處理，減少違規使用對財產權之損害。 / The land institution of urban land in Taiwan is “Zoning”. Even with the strict rules of zoning to control land use, there are still a lot of illegal land use cases. These illegal land uses may break the arrangements of social property rights and the entire social welfare. While most of the studies focus on finding the solution to the illegal land use problems, the causes of those problems are rarely discussed., which may not solve the illegal land use problems efficiently, or lead to more problems. Also, due to the increase of population in the cities and the business activities in the limited land, the illegal land use problems between housing and business land become more serious and need more attention. This research analyzes typical cases of illegal land use between housing and business in Taiwan. One of the cases is “Shida Business District”, where the business activities over used the land in the mixed residential commercial district. The other case is “Kee-Lung River Short Cut District”, which is low used as housing in the special business district. The research method is literature induction. On the basis of Institutional Economics (IE), this research divides the illegal land use problems into three levels: the institution making, the institution, and the institution performing. This research tries to analyze each level, find the source of the problems, and improve the restriction of past proposed solutions as well as build comprehensive strategies to these typical type cases. The results of the research show in the case of “Shida Business District”, the reasons of illegal land use problems exist in the level of the institution making and institution. The overlying zone and voting zone can solve the problems in the level of the institution making. The public oversight and intensive are the strategies to the institution performing problems in the short term. But in the long run, the political system needs improving. In the case of “Kee-Lung River Short Cut District”, the reasons of illegal land use problems exist in all three levels. In the short term, the institution correction by floating zone can modify the institution making and the institution problems. The solution of the institution performing problems is the same with the case of “Shida Business District”. Moreover, the analysis process of this research indicates that, before making any strategy, the most important thing is to clarify the original intention of the institution. It will be used to decide that who should won the initial property rights and develop complete strategies. This research analyzes the institution levels and integrates the solutions of illegal land use between housing and business to develop the strategies. We hope that in the future, this research can prevent the causes of illegal land use, or deal with illegal land use problems effectively to cut down the damages of property rights.

摘 要 臺大實驗林因其特殊歷史背景，與契約林農訂立之三種契約，歷經社會與經濟變遷後，漸生契約林農基於經濟因素而違規利用契約林地、林管處無法具體落實造林管理政策、契約林地利用契約規範與實際利用現況不甚相符等諸多問題。按非都市土地使用管制規則予以檢視，臺大實驗林契約林地係編定為林業用地，惟依臺大實驗林「被墾地合作造林辦法」、合作造林契約書規定，造林地可於單筆總面積的三成內從事森林特產物或果樹之種植，此與上開規則規定林業用地容許使用項目不得作農業使用之規範有所牴觸，除人為的利用，以保存自然資源?還是兼顧人們需要和環境保育，得積極介入以亟待研析解決辦法。 從自然資源利用的歷史角度以觀，除天然災害影響之外，人為干擾似乎是造成土地健康受損的根源。然而，究竟要完全排負責保育自然資源?凡此引發激烈的辯論。若從林地利用究屬保存與保育觀點檢視，林管處秉持林地林用的概念，是希望避免林地農用與干擾，以達成完全造林的目標，近乎保存的概念；而林農希望契約林地做混農利用，並希望透過在地知識以人為方式主動管理，且在不破壞林地健康的前提下，以提升經濟收入與環境健康，似屬保育的概念。然為落實維護林地資源，採取何種觀念為宜？ 本研究從臺大實驗林契約林地土地使用管制機制，藉由混農林業理論、保存與保育理論、土地使用管制等文獻評析，並透過深度訪談，分析臺大實驗林契約林地土地利用相關問題，最後得到以下結論：(1)臺大實驗林契約林地租地造林契約應予修正；（2）修正非都市土地使用管制規則之林業用地容許使用項目；（3）臺大實驗林繼續辦理國土復育計畫及獎勵造林計畫。本研究對於臺大實驗林契約林地土地利用，提出以下之建議:(1)修正臺大實驗林契約林地三種租地造林契約內容不適宜之規範，以符合現今法令規範；(2)重新查定臺大實驗林契約林地可利用限度並編定合適用地類別，以符土地使用管制規範；(3)修正非都市土地使用管制規則之林業用地容許使用項目，以利林地保育並導正使用；(4)臺大實驗林繼續辦理國土復育計畫及持續宣導獎勵造林計畫，以維護國土保育安全。最後，從導正土地使用管制機制，以利有效管理臺大實驗林契約林地，最終達成森林資源永續發展的目標。 關鍵詞：臺大實驗林契約林地、土地使用管制、保育與保存、混農林業、林業用地、違規使用 / Abstract Due to the unique historical background of the experimental forest of National Taiwan University (NTU), three types of contracts were signed with users of leased forest land. Many issues have now arisen after several social and economic changes. Such issues include the illegal use of the forest land, failure of the Forest District Offices to fully implement the relevant forestation management policies, and the inconsistency between the provisions of forest land use contracts and the conditions of actual use. According to the Regulations on Non-Urban Land Use Control, the NTU experimental forest is defined as forest land. On the other hand, however, according to the “Cooperation Guideline for Reclaimed Land Forestation” and the “Forestation Contract,” 30% of the total area of a parcel of forestation land may be used for the plantation of special forest products or fruit trees, which is inconsistent with the rule under the Regulations on Non-Urban Land Use Control prohibiting any agricultural use of forest land. As a result, a solution was to be analyzed and discussed to see whether the natural resources shall be preserved either without human use or with active intervention to balance human needs with environmental conservation. From the historical perspectives on natural resource use, human interference seems to be the main cause of damage to land. Heated discussions have been had regarding how to conserve natural resources. This issue might be viewed from the two points of view, i.e. preservation and conservation. The Forest District Office holds the view that forest land shall be used for the purpose of forestry to avoid agricultural use or interference and to achieve the goal of complete forestation. This is more of a concept of preservation. On the other hand, users of forest land would prefer agroforestry use of forest land and manage the land through local knowledge to improve economic returns and environmental health without destroying the forest land. This is more of a concept of conservation. Which concept is more ideal in terms of protection of forest land? In this study, we referred to publications in connection with agroforestry, preservation and conservation, and use control of land, along with in-depth interviews conducted to analyze the relevant issues regarding the use of the leased forest land at NTU experimental forest and concluded that: (1) the forestation contracts regarding the leased forest land at NTU experimental forest shall be amended; (2) the allowed use of forest land under the non-urban land use control regulations shall be revised; and (3) NTU experimental forest shall continue to participate in the national land recovery plan and encouraging plan for forestation. The possible measures for the use of leased forest land at NTU experimental forest as suggested by this study include: (1) amending the three types of forestation contracts regarding the leased forest land at NTU experimental forest for the purpose of legal compliance; (2) reinvestigating the scope of use of the leased forest land at NTU experimental forest and stipulating appropriate use types to be in conformance to the land use control regulations; (3) revising the allowed use of forest land under the non-urban land use control regulations for the purposes of forest land conservation and corrective use; and (4) the continuous participation of NTU experimental forest in the national land recovery plan and encouraging plan for forestation to maintain national land conservation. Finally, by correcting the mechanism of land use control, the leased forest land at NTU experimental forest will be effectively managed and the goal of perpetual development of forest resources achieved. Key words：Experimental forest leased forest land of National Taiwan University, Land use control, Conservation and preservation, Agroforestry, Forest land, Illegal use