談國土保育地區分區劃設之行政裁量與救濟

Discussion the Issues of Administrative Discretion and Judicial Relief of Environmental Conservation Zone Demarcation

國土計畫法依土地資源特性將我國國土劃分為國土保育地區、農業發展地區、城鄉發展地區、海洋資源地區四大分區並透過全國國土計畫及直轄市、縣（市）國土計畫等二層級體系進行國土空間計畫，再由各該主管機關依各級國土計畫國土功能分區之劃設內容，製作國土功能分區圖及編定適當使用地，經公告後實施管制。目前內政部已因應實施時程於2017年10月提出全國國土計畫草案，作為第一階段國土利用及全國土地發展政策之指導方針，然而草案中增加對國土保育區土地利用之限制卻已引發民眾反彈。惟依目前我國實務見解，行政訴訟需針對行政處分或事實行為始得進行司法救濟。故民眾就現階段全國國土計畫草案如有不服，是否得提起訴訟救濟，實有探討空間。本文擬先介紹草案中有關國土保育地區之劃設原則與土地使用指導，進一步由現階段全國國土計畫草案引發民眾權益限制角度，就有關國土保育區劃設之行政機關計畫裁量權行使與涉及人民土地權利限制之救濟為主要研究方向，次就國土計畫劃設特定地區之行政計畫屬性，討論其是否得受司法審查；得否類推適用都市計畫變更予以救濟或其他救濟可能等問題進行討論。

According Spatial plan Act, there are four Functional zones that de-marcation of environmental conservation zones, marine resource zones, agricultural development zones and urban-rural development zones con-sistent with the characteristics of land resources to facilitate conservation, utilization and management of the land, and establishment two steps of spatial development plan into National spatial plan and Municipality or county (city) spatial plan. Once the implementation of a municipality or county (city) spatial plan has been announced, each competent authority shall act in a manner consistent with the functional zones at various levels and produce corresponding functional zone maps; define the land for designated use and present them to the central competent authority for approval and announcement, and enforce relevant regulatory measures. For now, Ministry of the Interior, Republic of China (Taiwan) has been published the draft of National spatial plan during Oct. 2017 by schedule. As the guidelines of the first step plan of land use and country land develop, the draft has triggered public rally caused by increase the limits on land use in land conservation areas. However, according to the current practice in our country, administrative litigationjudicial review merely for orders of administrative sanctions or facts. Therefore, it is necessary to discussion if it is possible to bring litigation reliefof the draft of National spatial plan. This article introduce the land demarcation principles of Environmental conservation zones and the principles of the land use as beginning, then from the restriction of the rights and interests of the people and the land of the draft, discussion about the exercise of planning discretion. Secondly, discussion the nature of the administrative plans of theland demarcation of Specific area and whether it is subject to judicial review or not. And the issue that if the concept for change of the urban plan is possible to apply on the national spatial planchange or other relief may be discussed.