財產權的發展，具有將外部成本內部化，以及減輕租值消散的功能，同時也會影響誘因機制與市場行為，因此，建立可執行的財產權或契約系統，有助於降低交易成本，促進市場交易的效率。土地使用分區管制是政府用以界定財產權的一項重要工具，但在執行的過程中，會受到資訊不完全的因素所限制，而產生許多社會經濟衝突的問題，所以，在財產權界定不完全的情形下，分區管制制度的執行可能是一種負和、零和或正和的賽局。 在台灣的都市規劃管制制度下，土地使用分區管制一直被視為政府執行都市公共政策的重要工具，但是土地使用分區管制制度變遷的原因及對財產權配置的影響，很少被深入的探討，亦少有相關的實證研究予以論述說明。由於分區管制決策直接影響人民的土地財產權範圍，因此，以財產權為研究的焦點，連結制度及執行層面的動態分析，可以更深入地了解政策運作的過程，檢視分區管制制度設計的問題，藉以提供更佳的制度環境。本研究嘗試以新制度經濟學的基礎，基於財產權的觀點，連結制度變遷及執行層面的分析，研究所有權人及利益團體如何透過與政府的協商，改變土地使用分區管制制度，進而影響財產權配置的問題。在方法上，則透過賽局理論及個案研究，建立參與者行為互動模式及進行實證分析，以剖析制度變遷的原因及問題。 本研究除了進行以上所述的議題，亦同時關注制度選擇、容積移轉的問題，以及違規使用的行為，並將從一系列的行為分析中，進一步探究尋租行為對分區管制制度及經濟發展的影響。研究的結果，除了對分區管制制度提出具體的建議外，亦對制度變遷的行為及政府角色，提供更多的認知面向，值得作為都市研究的參考。 / Zoning institution is regarded as an important instrument for enforcing urban policy in Taiwan. Zoning not only control the quality of urban environment, but affect the price of real estate. However, the reasons of zoning institution changed and the factors influenced the assignment of property rights are very rarely investigated. The decision of zoning will directly influence the scope of landowners’ property rights. Thus, based upon the viewpoint of property rights, incorporated with institutional and enforcing dimension to conduct a dynamic analysis can deeply investigate the process of policy operation and the problems of institutional design so as to provide better institutional environment for zoning. This research, based on the property rights perspective and the approach of property rights analysis of New Institutional Economics, intend to investigate the change of zoning institution and its enforcement. The study pays special attention to the bargaining among private landowners, interest groups and government authority. In order to improve the institutional environment, this paper will also try to find the institutional problems in the process of enforcement through cases study. Cases study is used for further analysis the interaction among the actors participated so as to understand the processes of bargaining, re-assignment of property rights and the reasons of zoning institution changed. After the cases study, the research will address some suggestions of institutional design of zoning and try to review the policy of urban development and land use control in Taipei city. A promise suggestion on the institutional design of zoning will be provided for the reference of understanding and research on zoning institution and behaviors. In addition, the impact of the rent-seeking patterns and the production paths on the zoning behaviors resulting in the change of zoning institution are explored. The results of the research will make further suggestions to the issues of institutional design of zoning, and to the avoidance of the negative effects of rent-seeking behavior. Moreover, the source and process of institutional change of zoning related to rent-seeking behavior, and the ways government responds to the rent-seeking behaviors are provided for the reference of further study of urban planning.

公共設施保留地容積移轉在於藉由市場交易機制，使公共設施保留地地主在等待政府徵收之前，得透過容積出售給開發業者獲致價金補償之機會，並免除政府直接辦理徵收之財政壓力。容積移轉制度基本精神是以市場效率解決土地分區使用之公平問題，然現行制度下，不同地區之公共設施保留地移出容積可得價金懸殊缺乏公平性，且容積交易集中於特定地區，造成當地生活環境品質之惡化。故本研究在制度建立之政策層面，尋求達到「受損補償，受益付費」公平原則，使容積購買者付出合理的價金購買公共設施保留地地主持有容積並透過制度設計控管容積移轉對生活環境品質衝擊之問題。在容積交易市場層面，則透過市場機制設計，塑造有助於市場形成與價格維繫之環境及降低容積買賣雙方之交易成本，以促進市場交易之效率並實現前述對地主之公平為目標。 本研究首先從市場供需之角度，分析容積供需失衡，對公共設施保留地容積移轉市場中容積價格之影響，並檢視影響TDR方案成功之市場運作因素與供需條件。其次，就買賣雙方交易盈餘分配進行探討，運用賽局理論中那許均衡之概念，分析討價還價之均衡解，以闡明信息不對稱下，如何解決地主在容積交易中議價資訊不足之問題，提高容積移轉價格，增進該制度在保障公共設施保留地地主財產權之貢獻。第三，引用中間層理論探討TDR銀行在解決交易成本問題之優勢，並闡明非營利性質因減少中介費用支出，增加交易雙方之交易剩餘，較能使TDR方案成功。第四，藉由前述理論之探討，本研究研擬改善現行公共設施保留地容積移轉的市場機制之相關議題，透過學者專家問卷及權利關係人的問卷調查之設計，汲取市場機制改善之建議。 本研究認為我國容積移轉市場存在容積總量超出環境容受力、市場所能提供之交易資訊不足、容積價格落差過大、中介者所提供的服務仍待加強及交易成本偏高等問題，需透過政府介入加以解決。因此，提出以容積銀行為容積移轉政策執行核心之市場交易機制，由各直轄市、縣市政府成立一個非營利性質的容積銀行，作為容積移轉交易平台，並成立專款專用之容積銀行運作基金，作為政策性購買容積取得所需公共設施保留地之用，賦予容積銀行資訊提供、中介媒合、價格引導、確保交易等功能，降低容積移轉交易成本，創造有利之交易環境，確保公共設施保留地地主，能以合理價格出售變現、政府財政可以負荷及都市居住環境品質得到掌控與維護的政策目標。根據研究結果提出建立公共設施保留容積移轉政策之決策與實踐機制及以容積銀行交易平台為主之交易市場機制等制度建議，作為政府未來改善公共設施容積移轉制度之參考。 / The transferable development rights (TDR) of land reservations for public facilities are a unique transferring method of development rights in Taiwan. This system allows the owners of land reservations for public facilities to sell the land, through market transaction mechanism and before the acquisition by the government, to developers through TDR in order to earn land transferring compensation. This system can also reduce the financial burden on the government on land acquisition. However, TDR has been questioned for deteriorating the urban living environment due to overdevelopment, and the transaction mechanism may reduce the market function and efficiency due to high transaction costs. Therefore, this study aims to design a market mechanism that can control the impact of TDR on the living environment, create an environment that is conducive to market formulation and price maintenance, and reduce the transaction costs of sellers and buyers, in order to facilitate the efficiency of market transaction and realize the fairness on the land owners. This paper first analyzes the imbalance between the TDR supply and demand from the market supply and demand perspective, and examines the effect of TDR of land reservations for public facilities on volume price in the market, as well as the market operational factors and supply/demand conditions that affect the success of TDR plans. Then, it discusses the surplus distribution of buyers and sellers, and applies the concept of Nash Equilibrium in the Game Theory to analyze the equilibrium solution of price bargaining. It aims to expound on how land owners could raise the TDR price under insufficient information due to information asymmetry during the bargaining process, and enhance the contribution of this system on the proprietorship of the land owners on land reservations for public facilities. Third, this paper applies the intermediation theory to discuss the advantages of TDR banks in solving the problem of transaction costs, and explains the reason that non-profit characteristics are more likely to guarantee the success of TDR plans. Fourth, based on the above discussions, this paper aims to improve the market mechanism of the TDR of land reservations for public facilities, and conduct questionnaire survey on experts and interest parties in order to collect opinions on the improvement schemes. Lastly, this paper proposes the market mechanism of using TDR bank as the policy executor of TDR, and establishing a non-profit TDR bank in each city/county by the local government as a transaction platform for TDR transaction. TDR bank operational fund should be established for exclusive use on the policy-oriented purchase of TDR of land reservations for public facilities. Thus, the TDR bank has the functions of providing information, mediating, price guiding, and transaction guaranteeing, in order to reduce the TDR transaction costs, create a favorable transaction environment, ensure the land owners of land reservations for public facilities to sell their lands at reasonable prices, reduce the financial burden of the government, and maintain a fair urban living environment. Suggestions are provided based on the research findings as a reference to the government on improving the TDR system of land reservations for public facilities.

在都市發展環境當中，居住環境品質取決於居住者本身之感受程度，可分為內部環境及外部空間結構，內部環境係指針對居住者本身所在的生活圈裡，外部空間結構則多半為公共設施的鄰近程度、交通便利性及嫌惡設施等因素，世界衛生組織曾於1961年世界衛生報告中提出理想居住環境為安全性、健康性、便利性、舒適性等基本理念，經由探索性、驗證性因素，分析彙整出解釋社區居民對居住環境品質之衡量著力點在於實體性、社區服務與管理、現代化等三大方面，因此居民感受度是與前開四種基本理念相呼應的。 在針對居住環境品質與社區滿意度相關文獻探討後發現，居住環境品質多與社區滿意度有關聯，顯示在建構生活品質模式應先將領域分群，透過客觀、認知及評估因子，即可呈現各領域的滿意度。 為解決公共設施保留地取得、歷史建築物保存及公共開放空間之提供等議題，我國開始實施容積移轉制度，主要目的為追求環境寧適、健全實質建設、保留彈性立法規則及民眾參與，惟接受基地在注入原基準容積後，其鄰近居民之居住環境品質是否受到影響及衝擊，為本研究所關注之重點；本研究係探討容積移轉制度實行迄今，接受基地容積移轉案件在興建完成後，對週邊土地所帶來之影響。 本研究以容積移轉接受基地興建前後對居住環境品質之問卷調查，以新北市中和地區之接受基地周邊住民作為受訪對象，以因素分析、結構方程模式為分析方法，以五大變數－接受基地興建前既有環境滿意度、接受基地興建後正面環境改善、接受基地興建後負面改變影響、容積移轉政策修正建議及其政策滿意度進行模式驗證；研究結果發現既有環境滿意度對負面改變影響、政策修正建議呈正向影響，對正面環境改善、政策滿意度呈負向影響，另負面改變影響、政策修正建議則具有著之中介效果，該研究可作為未來推動容積移轉制度辦理之修正建議。 / In the urban development environment, living environment quality depends on how residents feel. It can be divided into internal and external spatial structure environments. The internal environment refers to living areas where the residents themselves reside; the external spatial structures are mostly the proximity, accessibility and distaste factors of public facilities. The World Health Organization’s 1961 World Health Report proposed the basic concept of the ideal living environment for safety, health, convenience, comfort, etc. They compiled an analysis of the environmental community to explain the measure of the quality of living through exploratory, confirmatory factors. The analysis compiled an explanation of the way community residents measure environmental quality. The focal point lies in the three aspects of modernization: physical properties, community service and management. Therefore residents' susceptibility echoes the former four basic philosophies. In regards to the quality of living environment and community satisfaction, after disscussing relevant literature, we found that the quality of living environment correlate with community satisfaction interaction. This shows that during the construction of life quality models, domain clustering should first take place, then go through the analysis of objective factors, perceived factors, evaluated factors before presenting various domains of satisfaction. However, to address topics on land reserved for the public infrastructure, topics on historical building preservation and public open space topics, Taiwan began to implement transferable development rights control. The main goal of this system was to pursue environmental quality, improve substantive construction, maintain the flexibility of legislative rules and promote public participation. However, the main concern of this study is whether or not the environmental living quality of nearby residents' was affected after the development rights of the receiving area received incremental development rights and built high-rise buildings. This study mainly dicusses ways to implement the so far accepted transferable development rights case after construction is complete, and the effects brought on by the surrounding land. This study looks at environmental quality before and after transferable development rights acceptance and construction. A questionnaire was designed for this study and was administered to local residents of the Zhong-he, New Taipei City development rights receiving area as target respondents. This study was conducted by way of factor analysis and structural equation modeling analysis. Five variables were proposed, which are variables of nearby residents of the development rights receiving area regarding environmental satisfaction before construction; variables of nearby residents having positive evaluation after construction; variables of nearby residents having negative evaluation after construction; variables of nearby residents regarding transferable development rights policy amendment; variables of nearby residents regarding transferable development rights policy satisfaction, to conduct a model confirmatory. The results show that environmental satisfaction variables have a positive impact on negative evaluation variables and policy amendment variables, but have a negative impact on positive evaluation variables and policy satisfaction. In addition, negative evaluation variables have indirect effects on policy amendments. This study can be used as a reference for the implementation of the transferable development rights system in handling amendments in the future.