重要實務
【高雄-帝謙法律事務所/土地重要實務(42)】台灣省山坡地丁種用地申請變更作非工業用審查要點，關於非都市土地使用分區內使用地變更編定要件之規定，是否違憲？
2014.4.15 高雄律師-楊岡儒律師
發文單位： 司法院
解釋字號： 釋字第 532 號
解釋日期： 民國 90 年 11 月 02 日
解釋爭點：
台灣省山坡地丁種用地申請變更作非工業用審查要點，關於非都市土地使用分區內使用地變更編定要件之規定，是否違憲？
資料來源：
司法院公報 第 43 卷 12 期 9-18 頁
司法院大法官解釋（十四）（99年5月版）第 308-324 頁
總統府公報 第 6432 號 8-21 頁
相關法條：
中華民國憲法 第 23 條 ( 36.01.01 )
區域計畫法 第 11、13、15 條 ( 89.01.26 )
臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築（窯業）用地申請同意變更作非工（窯）業使用審查作業要點 第 1、2、3 條 ( 88.07.01 )
非都市土地使用管制規則 第 6、10、12、17 條 ( 90.03.26 )
區域計畫法施行細則 第 13、15 條 ( 90.05.04 )
解 釋 文：
中華民國八十三年九月十六日發布之臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築 (窯業) 用地申請同意變更作非工 (窯) 業使用審查作業要點，係臺灣省政府本於職權訂定之命令，其中第二、三點規定，山坡地保育區、風景區、森林區丁種建築 (窯業) 用地若具備 (一)、廠地位於水庫集水區或水源水質水量保護區範圍內經由政府主動輔導遷廠或 (二) 、供作公共 (用) 設施使用或機關用地使用等要件之一，並檢具證明已符合前述要件之書件者，得申請同意將丁種建築 (窯業) 用地變更作非工 (窯) 業使用。其內容已逾越母法之範圍，創設區域計畫法暨非都市土地使用管制規則關於非都市土地使用分區內使用地變更編定要件之規定，違反非都市土地分區編定、限制使用並予管制之立法目的，且增加人民依法使用其土地權利之限制，與憲法第二十三條法律保留原則有違，應不予適用。
理 由 書：
按土地為人民生存所不可或缺，國家基於地理、人口、資源、經濟活動等相互依賴及共同利益關係，並配合國家經濟發展及環境保護之政策，應訂定符合社會需要之土地使用保育計畫，區域計畫法即係為合理調整土地上各種不同的使用需求與人民整體利益之均衡考量所制定之法律（參照本院釋字第四四四號解釋）。為貫徹非都市土地之使用管制與生態環境保育之公共政策，該法第十五條第一項規定，區域計畫公告實施後，不屬第十一條之非都市土地，應由有關直轄市或縣（市 )政府，按照非都市土地分區使用計畫，製定非都市土地使用分區圖，並編定各種使用地，報經上級主管機關核備後，實施管制。變更之程序亦同。其管制規則由中央主管機關定之。內政部本此授權，並依據區域計畫法施行細則第十三條劃定各種使用區及第十五條編定各種使用地之規定，訂定非都市土地管制規則，按土地之使用種類與性質實施管制，以促進非都市土地之合理利用。
八十三年九月十六日發布之臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築（窯業）用地申請同意變更作非工（窯）業使用審查作業要點（該要點係台灣省政府於八十三年九月十六日以八三府建一字第一六一一八四號函發布，已於八十八年八月四日經該省政府以八八府法字第一五七九二四號函示，溯自八十八年七月一日起停止適用），其第一點雖規定：本要點依據非都市土地使用管制規則第十二條、第十七條規定訂定，惟究其實質係台灣省政府基於主管機關之權限，為執行區域計畫法及非都市土地使用管制規則等所為之補充規定，故其內容僅能就執行母法之細節性、技術性等次要事項加以規範，該審查作業要點第二、三點以：山坡地保育區、風景區、森林區丁種建築（窯業）用地，申請同意變更作非工（窯）業使用者，應符合下列各款之一：（一）、廠地位於水庫集水區或水源水質水量保護區範圍內經由政府主動輔導遷廠者。（二）、供作公共（用）設施使用或機關用地使用者。土地所有權人並應檢具符合以上要件之證明書件。按非都市土地應分區編定、限制使用並實施管制，為區域計畫法第十五條第一項所明定，故非都市土地使用管制規則規定：經編定為某種使用之土地，應依其容許使用之項目使用（第六條第一項）、使用分區內各種使用地應在原使用分區範圍內申請變更編定（第十條第一項）。
從而除依區域計畫法第十三條第一項規定，區域計畫公告實施後，擬定計畫之機關應視實際發展情況，每五年通盤檢討一次，並作必要之變更，及依該條但書規定，發生或避免重大災害、興辦重大開發或建設事業、區域建設推行委員會之建議，得隨時檢討變更外，若擬將使用地變更為他種用途時，依非都市土地使用管制規則第十二條第一項規定，必須由申請人擬具興辦事業計畫，並經變更前、後目的事業主管機關之核准始得為之；同條第二項並規定：前項變更面積在十公頃以上者，變更後目的事業主管機關在核准興辦事業計畫前，其土地使用計畫應先徵得各該區域計畫原擬定機關之同意；第十七條第一款更規定：依目的事業主管機關核定計畫編定或變更編定之各種使用地，於該事業計畫註銷或撤銷者，其已依法變更使用部分，依其使用性質變更編定為適當使用地；其餘土地依變更編定前原編定使用地類別變更編定。前述審查作業要點創設區域計畫法暨非都市土地使用管制規則關於非都市土地使用分區內使用地變更編定之要件，不僅違反非都市土地分區編定、限制使用並予管制之立法目的，更增加人民依法使用其土地權利之限制，已非純屬執行母法有關細節性與技術性之補充規定，與憲法第二十三條法律保留原則有違，應不予適用。
J. Y. Interpretation No. 532
Date 2001.11.2
Issue
Are the provisions of the requisites for alteration of designation of the land belonging to the non-urban land use zoning provided by the Taiwan Province Operational Outlines of Review on the Application for Altering the Non-urban Lands in Mountain Slope Conservation Zones, Scenic Zones, and Forest Zones belonging to Type D Building (Kiln) Lands for Non-industrial (Kiln) Use in conflict with the Constitution?
Holding
The Taiwan Province Operational Outlines of Review on the Application for Altering the Non-urban Lands in Mountain Slope Conservation Zones, Scenic Zones, and Forest Zones belonging to Type D Building (Kiln) Lands for Non-industrial (Kiln) Use (hereinafter the “Outlines”) issued on September 16, 1994, were the regulations set by the Taiwan Provincial Government due to its authority. Items 2 and 3 of the Outlines provided that if the non-urban lands in mountain slope conservation zones, scenic zones, and forest zones belonging to Type D building (kiln) lands accorded with one of the following requirements: (1) the factory land is located within the vicinity of water stored in a water reservoir or a water quality and quantity protection area, and the Government actively assists in moving the factory; (2) lands are set aside for public facilities or for administrative agencies, and the documents conforming to the preceding requirements have been submitted, the landowner may apply for alteration of the Type D building (kiln) lands for non-industrial (kiln) use. These Outlines have gone beyond the range provided by the Act and have created other requisites for the alteration of designation on the land belonging to the non-urban land use zoning in the Regional Planning Act and the Non-urban Land Use Control Regulations. Said Outlines not only violate the intent of the Act to designate lands for their respective use in each zone, restrict the use and implement the control, but also add restrictions on the people's right to use their land. Therefore, said Outlines are in conflict with the principle of power reservation prescribed in Article 23 of the Constitution, and shall no longer be applied.
Reasoning
Land is necessary for the people’s social need. The State, based on the mutual reliance and mutual interest relationships of geography, population, resources, economic activities, etc., and according with the national economic development and environmental protection policy, shall make land use and conservation plans to accord with social need. The Regional Planning Act is a law enacted to reasonably coordinate the various needs of land use and balance the interests of all people (See J. Y. Interpretation No. 444). For carrying out the non-urban land use control and the public policy of environmental conservation, Paragraph 1 of Article 15 of this Act provides that after a regional plan has been announced and implemented, for the non-urban lands other than those prescribed in Article 11, the relevant municipal or county (city) governments shall draw the non-urban land use zoning map according to the non-urban land use zoning plan, designate the lands for various uses, and implement the control after reporting to the upper-level authority concerned for review and recording. The procedure of alteration is the same. The control regulations shall be provided by the central authority concerned. Based on this delegation, and according to the provision of zoning in Article 13 and the provision of designating in Article 15 of the Enforcement Rules for the Regional Planning Act, the Ministry of the Interior therefore sets the Non-urban Land Use Control Regulations and implements the control in accordance with the designation and nature of land uses in order to advance the reasonable use of non-urban lands.
Item 1 of the Outlines (these Outlines were issued on September 16, 1994, by the Taiwan Provincial Government with the letter 83 F. J. Y. T. No. 161184; on August 4, 1999, this Provincial Government proclaimed that the Outlines would no longer apply from the date retroactive to July 1, 1999, with the letter 88 F. F. T. No. 157924.) provided that said Outlines were set according to the provisions of Articles 12 and 17 of the Non-urban Land Use Control Regulations, but they were actually the supplement to the implementation of the Regional Planning Act and the Non-urban Land Use Control Regulations by the Taiwan Provincial Government due to its authority as the authority concerned. Therefore, what the Outlines can provide shall be limited to those minor matters of details, techniques, etc., for implementing the Act. Items 2 and 3 of the Outlines provided that people who are going to apply for alteration of the non-urban lands in mountain slope conservation zones, scenic zones, or forest zones belonging to Type D building (kiln) lands for non-industrial (kiln) use shall comply with one of the following requirements: (1) the factory land is located within the vicinity of water stored in a water reservoir or a water quality and quantity protection area, and the Government actively assists in moving the factory; (2) lands are set aside for public facilities or for administrative agencies. Besides, the landowners shall submit documents that conform to the preceding requirements. Paragraph 1 of Article 15 of the Regional Planning Act provides that the non-urban lands shall be designated for their respective use in each zone, the way of use shall be restricted and the control shall be implemented. The Non-urban Land Use Control Regulations therefore provide that once a parcel of land has been designated for certain use, it shall be used according to the way allowed (Paragraph 1 of Article 6); application for alteration of designation in each designated parcel of land belonging to a certain zone shall be limited to the alteration within the original zone (Paragraph 1 of Article 10). Accordingly, Paragraph 1 of Article 13 of the Regional Planning Act provides that after the regional plan has been announced and implemented, the agency which made the plan shall comprehensively review the plan every five years and make necessary alterations, depending on the actual development. This Article also provides that if there is an occurrence of or need to avoid a serious disaster, institution of important development or construction undertakings, or suggestion from the Regional Construction Advance Committee, the agency may review or alter the regional plan at any time. If there is a designated land plan to be altered for another use, according to Paragraph 1 of Article 12 of the Non-urban Land Use Control Regulations, the applicant shall prepare the implementation plan and this plan shall be approved by the authorities concerned with the implementation, including the authorities both before and after the alteration. Paragraph 2 of the same Article further provides that if the land referred to in the preceding paragraph is larger than ten hectares, before the authority concerned with the implementation after the alteration makes the decision to approve the plan implementation, the land use plan shall first be approved by the agency which originally made the regional plan. Subparagraph 1 of Article 17 moreover provides that if the designation or alteration of designation of the land was based on the plan which was approved by the authority concerned with the implementation, and the plan implementation has been cancelled or revoked, this portion of the land on which the designation has been altered according to the law shall be designated for other suitable use according to the nature of the use; the other portion shall be designated for the use designated before the alteration. The aforesaid Outlines have created other requisites for the alteration of designation on the land belonging to the non-urban land use zoning in the Regional Planning Act and the Non-urban Land Use Control Regulations. These Outlines not only violate the intent of the Act to designate lands for their respective use in each zone, restrict the use and implement the control, but also add restrictions on the people's right to use their land. This is more than just a supplement to the matters of details and techniques for implementing the Act, and this is in conflict with the principle of power reservation prescribed in Article 23 of the Constitution. Therefore, these Outlines shall no longer be applied.
'Translated by Jer -Shenq Shieh.
解釋字號： 釋字第 532 號
解釋日期： 民國 90 年 11 月 02 日
解釋爭點：
台灣省山坡地丁種用地申請變更作非工業用審查要點，關於非都市土地使用分區內使用地變更編定要件之規定，是否違憲？
資料來源：
司法院公報 第 43 卷 12 期 9-18 頁
司法院大法官解釋（十四）（99年5月版）第 308-324 頁
總統府公報 第 6432 號 8-21 頁
相關法條：
中華民國憲法 第 23 條 ( 36.01.01 )
區域計畫法 第 11、13、15 條 ( 89.01.26 )
臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築（窯業）用地申請同意變更作非工（窯）業使用審查作業要點 第 1、2、3 條 ( 88.07.01 )
非都市土地使用管制規則 第 6、10、12、17 條 ( 90.03.26 )
區域計畫法施行細則 第 13、15 條 ( 90.05.04 )
解 釋 文：
中華民國八十三年九月十六日發布之臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築 (窯業) 用地申請同意變更作非工 (窯) 業使用審查作業要點，係臺灣省政府本於職權訂定之命令，其中第二、三點規定，山坡地保育區、風景區、森林區丁種建築 (窯業) 用地若具備 (一)、廠地位於水庫集水區或水源水質水量保護區範圍內經由政府主動輔導遷廠或 (二) 、供作公共 (用) 設施使用或機關用地使用等要件之一，並檢具證明已符合前述要件之書件者，得申請同意將丁種建築 (窯業) 用地變更作非工 (窯) 業使用。其內容已逾越母法之範圍，創設區域計畫法暨非都市土地使用管制規則關於非都市土地使用分區內使用地變更編定要件之規定，違反非都市土地分區編定、限制使用並予管制之立法目的，且增加人民依法使用其土地權利之限制，與憲法第二十三條法律保留原則有違，應不予適用。
理 由 書：
按土地為人民生存所不可或缺，國家基於地理、人口、資源、經濟活動等相互依賴及共同利益關係，並配合國家經濟發展及環境保護之政策，應訂定符合社會需要之土地使用保育計畫，區域計畫法即係為合理調整土地上各種不同的使用需求與人民整體利益之均衡考量所制定之法律（參照本院釋字第四四四號解釋）。為貫徹非都市土地之使用管制與生態環境保育之公共政策，該法第十五條第一項規定，區域計畫公告實施後，不屬第十一條之非都市土地，應由有關直轄市或縣（市 )政府，按照非都市土地分區使用計畫，製定非都市土地使用分區圖，並編定各種使用地，報經上級主管機關核備後，實施管制。變更之程序亦同。其管制規則由中央主管機關定之。內政部本此授權，並依據區域計畫法施行細則第十三條劃定各種使用區及第十五條編定各種使用地之規定，訂定非都市土地管制規則，按土地之使用種類與性質實施管制，以促進非都市土地之合理利用。
八十三年九月十六日發布之臺灣省非都市土地山坡地保育區、風景區、森林區丁種建築（窯業）用地申請同意變更作非工（窯）業使用審查作業要點（該要點係台灣省政府於八十三年九月十六日以八三府建一字第一六一一八四號函發布，已於八十八年八月四日經該省政府以八八府法字第一五七九二四號函示，溯自八十八年七月一日起停止適用），其第一點雖規定：本要點依據非都市土地使用管制規則第十二條、第十七條規定訂定，惟究其實質係台灣省政府基於主管機關之權限，為執行區域計畫法及非都市土地使用管制規則等所為之補充規定，故其內容僅能就執行母法之細節性、技術性等次要事項加以規範，該審查作業要點第二、三點以：山坡地保育區、風景區、森林區丁種建築（窯業）用地，申請同意變更作非工（窯）業使用者，應符合下列各款之一：（一）、廠地位於水庫集水區或水源水質水量保護區範圍內經由政府主動輔導遷廠者。（二）、供作公共（用）設施使用或機關用地使用者。土地所有權人並應檢具符合以上要件之證明書件。按非都市土地應分區編定、限制使用並實施管制，為區域計畫法第十五條第一項所明定，故非都市土地使用管制規則規定：經編定為某種使用之土地，應依其容許使用之項目使用（第六條第一項）、使用分區內各種使用地應在原使用分區範圍內申請變更編定（第十條第一項）。
從而除依區域計畫法第十三條第一項規定，區域計畫公告實施後，擬定計畫之機關應視實際發展情況，每五年通盤檢討一次，並作必要之變更，及依該條但書規定，發生或避免重大災害、興辦重大開發或建設事業、區域建設推行委員會之建議，得隨時檢討變更外，若擬將使用地變更為他種用途時，依非都市土地使用管制規則第十二條第一項規定，必須由申請人擬具興辦事業計畫，並經變更前、後目的事業主管機關之核准始得為之；同條第二項並規定：前項變更面積在十公頃以上者，變更後目的事業主管機關在核准興辦事業計畫前，其土地使用計畫應先徵得各該區域計畫原擬定機關之同意；第十七條第一款更規定：依目的事業主管機關核定計畫編定或變更編定之各種使用地，於該事業計畫註銷或撤銷者，其已依法變更使用部分，依其使用性質變更編定為適當使用地；其餘土地依變更編定前原編定使用地類別變更編定。前述審查作業要點創設區域計畫法暨非都市土地使用管制規則關於非都市土地使用分區內使用地變更編定之要件，不僅違反非都市土地分區編定、限制使用並予管制之立法目的，更增加人民依法使用其土地權利之限制，已非純屬執行母法有關細節性與技術性之補充規定，與憲法第二十三條法律保留原則有違，應不予適用。
J. Y. Interpretation No. 532
Date 2001.11.2
Issue
Are the provisions of the requisites for alteration of designation of the land belonging to the non-urban land use zoning provided by the Taiwan Province Operational Outlines of Review on the Application for Altering the Non-urban Lands in Mountain Slope Conservation Zones, Scenic Zones, and Forest Zones belonging to Type D Building (Kiln) Lands for Non-industrial (Kiln) Use in conflict with the Constitution?
Holding
The Taiwan Province Operational Outlines of Review on the Application for Altering the Non-urban Lands in Mountain Slope Conservation Zones, Scenic Zones, and Forest Zones belonging to Type D Building (Kiln) Lands for Non-industrial (Kiln) Use (hereinafter the “Outlines”) issued on September 16, 1994, were the regulations set by the Taiwan Provincial Government due to its authority. Items 2 and 3 of the Outlines provided that if the non-urban lands in mountain slope conservation zones, scenic zones, and forest zones belonging to Type D building (kiln) lands accorded with one of the following requirements: (1) the factory land is located within the vicinity of water stored in a water reservoir or a water quality and quantity protection area, and the Government actively assists in moving the factory; (2) lands are set aside for public facilities or for administrative agencies, and the documents conforming to the preceding requirements have been submitted, the landowner may apply for alteration of the Type D building (kiln) lands for non-industrial (kiln) use. These Outlines have gone beyond the range provided by the Act and have created other requisites for the alteration of designation on the land belonging to the non-urban land use zoning in the Regional Planning Act and the Non-urban Land Use Control Regulations. Said Outlines not only violate the intent of the Act to designate lands for their respective use in each zone, restrict the use and implement the control, but also add restrictions on the people's right to use their land. Therefore, said Outlines are in conflict with the principle of power reservation prescribed in Article 23 of the Constitution, and shall no longer be applied.
Reasoning
Land is necessary for the people’s social need. The State, based on the mutual reliance and mutual interest relationships of geography, population, resources, economic activities, etc., and according with the national economic development and environmental protection policy, shall make land use and conservation plans to accord with social need. The Regional Planning Act is a law enacted to reasonably coordinate the various needs of land use and balance the interests of all people (See J. Y. Interpretation No. 444). For carrying out the non-urban land use control and the public policy of environmental conservation, Paragraph 1 of Article 15 of this Act provides that after a regional plan has been announced and implemented, for the non-urban lands other than those prescribed in Article 11, the relevant municipal or county (city) governments shall draw the non-urban land use zoning map according to the non-urban land use zoning plan, designate the lands for various uses, and implement the control after reporting to the upper-level authority concerned for review and recording. The procedure of alteration is the same. The control regulations shall be provided by the central authority concerned. Based on this delegation, and according to the provision of zoning in Article 13 and the provision of designating in Article 15 of the Enforcement Rules for the Regional Planning Act, the Ministry of the Interior therefore sets the Non-urban Land Use Control Regulations and implements the control in accordance with the designation and nature of land uses in order to advance the reasonable use of non-urban lands.
Item 1 of the Outlines (these Outlines were issued on September 16, 1994, by the Taiwan Provincial Government with the letter 83 F. J. Y. T. No. 161184; on August 4, 1999, this Provincial Government proclaimed that the Outlines would no longer apply from the date retroactive to July 1, 1999, with the letter 88 F. F. T. No. 157924.) provided that said Outlines were set according to the provisions of Articles 12 and 17 of the Non-urban Land Use Control Regulations, but they were actually the supplement to the implementation of the Regional Planning Act and the Non-urban Land Use Control Regulations by the Taiwan Provincial Government due to its authority as the authority concerned. Therefore, what the Outlines can provide shall be limited to those minor matters of details, techniques, etc., for implementing the Act. Items 2 and 3 of the Outlines provided that people who are going to apply for alteration of the non-urban lands in mountain slope conservation zones, scenic zones, or forest zones belonging to Type D building (kiln) lands for non-industrial (kiln) use shall comply with one of the following requirements: (1) the factory land is located within the vicinity of water stored in a water reservoir or a water quality and quantity protection area, and the Government actively assists in moving the factory; (2) lands are set aside for public facilities or for administrative agencies. Besides, the landowners shall submit documents that conform to the preceding requirements. Paragraph 1 of Article 15 of the Regional Planning Act provides that the non-urban lands shall be designated for their respective use in each zone, the way of use shall be restricted and the control shall be implemented. The Non-urban Land Use Control Regulations therefore provide that once a parcel of land has been designated for certain use, it shall be used according to the way allowed (Paragraph 1 of Article 6); application for alteration of designation in each designated parcel of land belonging to a certain zone shall be limited to the alteration within the original zone (Paragraph 1 of Article 10). Accordingly, Paragraph 1 of Article 13 of the Regional Planning Act provides that after the regional plan has been announced and implemented, the agency which made the plan shall comprehensively review the plan every five years and make necessary alterations, depending on the actual development. This Article also provides that if there is an occurrence of or need to avoid a serious disaster, institution of important development or construction undertakings, or suggestion from the Regional Construction Advance Committee, the agency may review or alter the regional plan at any time. If there is a designated land plan to be altered for another use, according to Paragraph 1 of Article 12 of the Non-urban Land Use Control Regulations, the applicant shall prepare the implementation plan and this plan shall be approved by the authorities concerned with the implementation, including the authorities both before and after the alteration. Paragraph 2 of the same Article further provides that if the land referred to in the preceding paragraph is larger than ten hectares, before the authority concerned with the implementation after the alteration makes the decision to approve the plan implementation, the land use plan shall first be approved by the agency which originally made the regional plan. Subparagraph 1 of Article 17 moreover provides that if the designation or alteration of designation of the land was based on the plan which was approved by the authority concerned with the implementation, and the plan implementation has been cancelled or revoked, this portion of the land on which the designation has been altered according to the law shall be designated for other suitable use according to the nature of the use; the other portion shall be designated for the use designated before the alteration. The aforesaid Outlines have created other requisites for the alteration of designation on the land belonging to the non-urban land use zoning in the Regional Planning Act and the Non-urban Land Use Control Regulations. These Outlines not only violate the intent of the Act to designate lands for their respective use in each zone, restrict the use and implement the control, but also add restrictions on the people's right to use their land. This is more than just a supplement to the matters of details and techniques for implementing the Act, and this is in conflict with the principle of power reservation prescribed in Article 23 of the Constitution. Therefore, these Outlines shall no longer be applied.
'Translated by Jer -Shenq Shieh.
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