由於經濟快速發展及國際化、自由化的趨勢，導致城鄉發展的重新結構，也面臨愈來愈多非都市土地開發及農地變更的外來壓力及需求。農地除具有保障糧食安全功能外，尚具有保護自然生態環境、維持生態體系平衡、調和整體土地利用等「外部效益」，世界各國包括美國各洲、德國、日本等，均積極致力於農地保育，嚴格管制農地不得任意轉用；反觀我國土地使用管制及變更制度，自1930年土地法立法至1976年訂定非都市土地使用管制規則，農地係採取積極保護政策；然自1980年代起，由於積極發展工商業，致農業在國民經濟中之重要性日見下降，1995年宣佈實施「農地釋出方案」後，是為農地由分區管制之保護方式走向自由化之起步。2000年修正農業發展條例，放寬農地自由買賣，更將農地進一步推向自由化，然農地自由化仍有其限制，且應建立在嚴格的土地使用管制基礎上。 農地管制政策的放寬，讓許多標準農業區優良農田間，充斥著工廠及加油站、廢棄物處理廠等特定目的事業用地，形成環境污染的隱憂；雖為配合工商業及經濟發展所需，得釋出部份農地，然農業用地劃定或變更為非農業使用，仍應以「不影響農業生產環境之完整」為前提，基於「農地保護」觀點，為確保優良農田不受產業變更或經濟發展所帶來的衝擊或破壞，並維持完整之農業生產環境，確保糧食生產及農業之永續經營，對現行農牧用地變更使用問題，及其規範對現有農業生產環境之影響，實有探究之必要。 目前相關研究多就都市計畫農業區或整體農地資源（包括都市計畫內及非都市土地）之變更法制、管理制度面及回饋機制進行探討，惟就非都市土地農牧用地變更審議相關法令規範及各種型態包括不同面積、不同區位之變更審議規定之差異、後續管制方式及其對於農地資源保育、農業生產環境之影響並未有完整的「實證分析」，當前不同型態農牧用地變更規範，是否合理性？是否均能在「不影響農業生產環境」之前提下進行變更？對周邊農業生產環境之影響有何不同？亦未深入探討，本研究藉由桃園縣個案的實證分析、相關課題的探討及對公私部門及專家學者的深入訪談，以探析我國非都市土地農牧用地變更使用制度及農地保護措施；並以國外之農地保護政策為借鏡，進一步提出農牧用地變更使用制度及農地保護措施之建議改善策略，以別於其他研究。 / Due to fast economic development and the trends of globalization and liberalization, urban and rural development has been completely restructured, and there is a growing need for development of non-urban lands and conversion of farmlands. In addition to maintenance of food sufficiency, farmlands also have other “external benefits”, including preservation of the natural ecological environment, maintenance of an ecological balance, and balancing of overall use of lands. Many nations around the world, including the US, Germany, and Japan, have been devoted to preservation of farmlands through strict control of conversion of farmlands. In an overview of the domestic regulations on land use control and conversion, it can be found that since legislation of the Land Act in 1930 and Regulations on Non-Urban Land Use Control in 1976, our government had been engaged in protection of farmlands. After 1980, the importance of agriculture for the national economy gradually decreased due to promotion of industrial and commercial industries. In 1995, the “Farmland Release Policy” was implemented, ushering in liberalization of farmlands. In 2000, the Agricultural Development Act was amended to lift the ban on free trading of farmlands. The amendment of this act further liberalized the use of farmlands. However, liberalization of farmlands was bound to certain limitation and should be based on strict control of land use. The relaxation of the farmland control policy has made many standard agricultural zones filled with lands used for specific businesses, such as factories, gas stations, and waste processing plants, and caused public worries over environmental pollution. Although release of a portion of farmlands is necessary for commercial and economic development, planning of farmlands or conversion of farmlands for non-agricultural use should be carried out on the condition that “completeness of the agricultural production environment is unaffected”. Based on “farmland protection”, the impact or harm of agricultural changes and economic development on farmlands should be avoided, and the completeness of the agricultural production environment should be maintained, so as to ensure sustainable development of food production and agriculture. Therefore, investigation of issues concerning conversion of farming and grazing lands and regulations governing the impact of such conversion on the agricultural production environment is indeed necessary. In the present, most studies of related issues are focused on regulations on conversion, management, and feedback mechanisms of agricultural zones in urban plan or holistic farmland resources (including non-urban lands in urban plans). However, there is no comprehensive “empirical analysis” of regulations on review of conversion of non-urban farming and grazing lands, difference in regulations for various types of lands (including lands of different sizes and in different regions), subsequent control mechanisms, and the impact of the conversion on preservation of farmland resources or the agricultural production environment. Besides, issues such as whether the regulations on conversion of different types of farming and grazing lands is feasible, whether these lands can be converted on the condition that “the agricultural production environment is unaffected”, and whether conversion of these types of lands causes different effects on their surrounding agricultural production environments, have not been thoroughly investigated so far. Therefore, through an empirical analysis of cases in Taoyuan County, investigation of related issues, and interview with experts and public/private departments, this study aimed to explore the domestic regulations on conversion of use of non-urban farming and grazing lands and protective measures for farmlands. Further, based on farmland protection policies adopted in foreign nations, this study further proposed strategies for improving the current system and protective measures to distinguish itself from other existing studies.

本論文之目的主要是研析當前台灣地區非都市土地使用管制問題，嘗試提出改進措施 ，配合各項相關建設事業，使土地使用管制達到積極的效益。全文共分七章，首章敘 述研究動機、方法、範圍，第二章敘明我國非都市土地使用所產生的問題及其形成原 因，第三章引述以前對高等則水田依土地法規定編定為農業用地之管制，以及目前依 實施區域計劃對非都市土地以劃定各種使用區及編定各種使用地管制方式，第四章比 較美國夏威夷州、日本及丹麥各國之管制類型與我國管制型態，第五章檢討現行管制 體制、型態、內容、法令及有關配合措施之執行情形，第六章針對檢討缺點而提出改 進方法，包括相關的配合建設措施，第七章係摘要與建議。