農地轉用與農地佔用在國土空間的發展與變遷

The Development and Transition of Farmland Conversion and Forestland Occupation

台灣在邁入工業化國家的同時，社會上仍不斷呼籲維護農業土地及確保國家糧食安全。雖然農地理想上本應作農業利用，但現實是土地使用計畫無法完全有效的主導土地利用，不僅部分農牧用地被轉為產業或住商使用，亦有其他用地被轉為農業利用的情形。110年內政部營建署公布的國土白皮書，揭露了95~108年的國土利用發展與變遷，以及國土利用現況與土地使用分區管制的交叉結果，說明非都市土地的農業利用、製造業利用、宗教利用及住宅利用的土地分布情形，再次引起各界對於落實土地使用計畫的重視。
鑑此，本研究首先探索「農地」及「農用」之定義並分析其發展趨勢，再疊圖分析各縣市95~108年間農地轉用與農地佔用兩種土地利用型態的空間發展與變遷，並就變遷幅度較大的縣市進一步分析其變遷坵塊的數量及空間樣態，以瞭解農地農用之外，與農業發展有關的地理分布與空間型態。研究結果發現，我國「農地」與農地工廠面積在逐漸增加，「農用」與林地農用面積逐漸減少。空間型態方面，不同用途與不同縣市都會影響變遷坵塊的空間型態。作為農地轉用及農地佔用等土地利用型態之先導研究，本研究一方面提供規劃者反思土地使用分區與其安排，另一方面可以作為相關領域學者深入探索土地利用變遷的基礎資料。

While Taiwan is developing as an industrialized country, there has been appeals for farmland conservation to ensure national food security. Ideally, agricultural land should be utilized for agricultural production, but in reality, the land use plan cannot effectively manage the land utilization. It is found that some farmland was converted into non-agricultural usage, in the meantime, some other land was occupied by agricultural usage. In the 2021 Spatial Planning White Paper published by the construction and planning agency, the ministry of the interior disclosed the transition of land utilization and zoning, and their cross-analysis results from 2006 to 2019. It illustrated the distribution of agricultural usage, manufactural usage, regionary usage, and residential usage in non-urban area, and raised public awareness of the realization of land use plan.
Following the result of the 2021 Spatial Planning White Paper, this study aims to expand the understanding of the geography and spatial patterns of agricultural development regarding the non-typical land use besides agri-land for agricultural usage. First, the legal definitions of“agri-land”and“agricultural usage”were investigated. Second, the development and changes of farmland conversion and forestland occupation of each city and county from 2006 to 2019 were explored by overlay analysis, and the number and spatial patterns of the usage-changed plots in the more changed cities and counties were compared. The results indicate that the areas of agri-land and farmland conversion are increasing, while the areas of agricultural usage and forestland occupation are declining. In addition, the spatial patterns of the usage-changed plots will be affected by its corresponding land use and locality. As a pilot study of farmland conversion and forestland occupation, this study provides a reflection of land use arrangement for planners on the one hand, and constructs the preliminary data for further researches on the other hand.