工廠管理輔導法未登記工廠處理之法律經濟分析

The Legal and Economic Analysis of Handling Unregistered Factories in Factory Management Counseling Methods

多數未登記工廠的成因在於違反工輔法第9條：「設立工廠所使用之土地，以利用都市計畫工業區、非都市土地編定為丁種建築用地、依法編定開發之工業區或其他依法令規定可供設廠之土地為限。」未登記工廠因土地使用分區因素而無法辦理工廠登記，亦同時違反區域計畫法、都市計畫法及建築法等規定。
未登記工廠對地方經濟產生了貢獻，所以有些地方政府明知道是違章，卻拆不得。政府為杜絕農地違規政府使用情形，對於2016年5月20日以後新增之未登記工廠，應即依法停止供電、供水及拆除；2016年5月19日以前非屬低污染之既有未登記工廠，訂定輔導期限，輔導業者轉型、遷廠或關廠；2016年5月19日以前低污染之既有未登記工廠，則輔導於修正條文施行之日起2年內申請納管。但未登記工廠所帶來的環境風險以及土地治理問題，究竟應如何面對及處理，不可諱言確實是一個難題。故處理未登記工廠這種歷史共業問題，社會爭議甚大，拆除遷移至工業區或產業園區或有條件就地合法化，決策者應考量社會大淨福祉（效益）方案。本文從嘗試跳脫現行法律的框架之下，而純粹從經濟分析的利益去做著手，探討「有條件就地合法化」為比「拆除遷移至工業區或產業園區」淨效益大，故處理未登記工廠採取「有條件就地合法化」方案，可以兼顧「公平正義」及「財富極大」價值判斷目標。

The majority of unregistered factories arise from violations of Article 9 of the Factory Act:“The land used for establishing factories is limited to industrial zones designated in urban planning, non-urban land classified as Type D construction land, industrial zones developed according to law, or other lands designated by law for factory establishment.”Unregistered factories cannot obtain factory registration due to land use zoning factors, which also violates regulations under the Regional Planning Act, Urban Planning Act, and Building Act.
Unregistered factories contribute to the local economy, so some local governments are aware that these operations are illegal but cannot demolish them. To eliminate violations of agricultural land use, the government mandates that for unregistered factories established after May 20, 2016, electricity and water supply must be stopped, and they should be demolished according to the law. For existing unregistered factories that are not low-pollution facilities established before May 19, 2016, a guidance period is set for operators to transform, relocate, or close down.Existing unregistered low-pollution factories established before May 19, 2016, must apply for management within two years from the implementation of the revised regulations. However, how to face and address the environmental risks and land governance issues brought about by unregistered factories is indeed a challenging problem. Therefore, in addressing the historical issues related to unregistered factories, which are highly controversial in society, decision-makers should consider solutions that maximize social net welfare (benefit), whether it involves demolition and relocation to industrial zones or parks, or conditional on-site legalization. Therefore, in addressing the historical issues related to unregistered factories, which are highly controversial in society, decision-makers should consider solutions that maximize social net welfare (benefit), whether it involves demolition and relocation to industrial zones or parks, or conditional on-site legalization. This article attempts to step outside the current legal framework and focuses purely on the economic analysis of benefits. It explores how“conditional on-site legalization”has greater net benefits compared to“demolition and relocation to industrial zones or parks.”Therefore, adopting the“conditional on-site legalization”approach for handling unregistered factories can balance the goals of“fair justice”and“wealth maximization.”