Fine Particulate Matters Risk Control in Taiwan: Scientific Debate and Governance

本文從全球化風險的概念中，以台灣文化所產生的系統性風險，再以公民認識論來分析當今被認為是一重要的致病因素，「細懸浮微粒」的科技政策與社會的關係。「細懸浮微粒」已經成為當代的全球跨境汙染物之一，並且在台灣目前的工業發展中是不可忽視的健康風險議題。細懸浮微粒議題促使台灣社會產生什麼樣的系統性變革，也用此一議題來描述台灣公民認識論的轉換。 檢視過去我國對於科技議題的政策治理，政府部門所形成的「專家政治」，技術官僚傾向以實證性的科學評估做為決策判斷的依據。但這種以「信託方式」的治理已經面臨到了困境，這種模式使得政府在各種爭議風險事件當中的政策失當。政府大量失去民眾的信任，同時也質疑政府的治理能力。也因此，信託在台灣的概念已經需要轉換，而且已經轉換了。依照Jasanoff所提的公民認識論，台灣社會的自我保護模式正在改變。從原本的信託模式轉變到當前趨勢，它透過社會運動團體結合外部專家，尋求新知來對抗政府的技術官僚以及科學諮詢網絡，以此來發展社會強健性。This article, started from the concept of globalization of risk, analyzes “Fine Particulate Matters” (PM2.5), a significant disease factor, with the systematic risk in Taiwan culture and citizen epistemology.PM2.5 is an important transboundary pollutant in global and an un-ignorable health issue in the industrial development of Taiwan. The systematic changes facilitated by PM2.5 issue will be used to depict the transformation of citizen epistemology. Examining past issues of Taiwan''s technology governance, the “experts politics” formed by governmental agencies, technocrats tended to use experimental scientific assessment as decision-making principles. But this governance model of "trust" has been facing difficulties. This model leads the government’s malfunction in a variety of risk events. Government lost the trust of the public; and the public criticize the government''s governmental ability. Therefore, the "trust" concept has to be converted and has been converted in Taiwan. According to Jasanoff’s term, "civil epistemology," the self-protection mode in Taiwanese society is changing. From the original "trust" mode to the ongoing trend, it transform to "social movements" combined with "against experts" to seek new knowledge to fight the government technocrats and scientific advisory network, in order to develop social robustness.第一章 緒論 ............................................................................................................................. 1 1. 問題意識與緣起 .............................................................................................................. 1 1.1研究動機 ..................................................................................................................... 1 1.2研究目的： ................................................................................................................. 5 1.3 研究問題： .............................................................................................................. 10 2. 文獻回顧 ........................................................................................................................ 10 2.1全球化風險 ............................................................................................................... 11 2.2 科學服務政策 .......................................................................................................... 15 2.3 科技出於民眾 .......................................................................................................... 17 3.研究架構與方法 .............................................................................................................. 25 3.1研究架構： ............................................................................................................... 26 3.2 研究方法： .............................................................................................................. 26 3.3 章節說明： .............................................................................................................. 27 第二章 懸浮微粒的背景介紹 ............................................................................................... 31 1. 微粒的介紹 .................................................................................................................... 31 1.1 懸浮微粒PM10與細微粒PM2.5 ........................................................................... 31 1.2 懸浮微粒管制到細微粒管制 .................................................................................. 34 2. 國際管制內容 ................................................................................................................ 35 2.1 美國的標準 .............................................................................................................. 35 2.2 WHO參照美國研究訂定準則 ................................................................................. 36 2.3 歐盟與世界各國的標準值 ...................................................................................... 38 3. 環保署的管制規劃 ........................................................................................................ 39 3.1 環保署的預定計畫 .................................................................................................. 39 3.2 尚未管制前的困難 .................................................................................................. 42 第三章 國光石化的議題興起背景 ....................................................................................... 46 1.國光石化背景 .................................................................................................................. 46 1.1 國光石化的遷移 ...................................................................................................... 46 1.2 從上而下的國光石化決策過程 .............................................................................. 48 1.3 台中火力發電廠仍然是傳統空汙議題 .................................................................. 50 2.細懸浮微粒的議題出現 .................................................................................................. 51 2.1細懸浮微粒的議題出現契機 ................................................................................... 51 2.2尋求內部溝通管道產生瓶頸 ................................................................................... 54 2.3環保署對健康風險的回應 ....................................................................................... 57 第四章 國光石化環評時細懸浮微粒的社會運動與科學爭議 ........................................... 62 1. 公民知識論的轉變 ........................................................................................................ 62 1.1 公民建構問題、揭露問題 .................................................................................... 62 1.2 結合專家提出新的論述 ........................................................................................ 64 2. 細懸浮微粒的議題興起擴大知識脈絡 ........................................................................ 69 2.1 前期參與國光石化運動的公民 .............................................................................. 70 2.2 公民與專家的串聯 .................................................................................................. 73 2.3專家與專家之間的串連 ........................................................................................... 77 3. 健康風險與專家的背景爭議 ........................................................................................ 86 3.1國光石化在六輕設廠將增加4260人死亡 ............................................................. 87 3.2 批鬥大會還是專家會議 .......................................................................................... 89 3.3 被排擠的專家 .......................................................................................................... 91 第五章 國光石化停止投資後細懸浮微粒的管制爭議 ....................................................... 96 1. 公民監督細懸浮微粒的管制 ........................................................................................ 96 1.1持續監督產業議題 ................................................................................................... 96 1.2社會的連結將細懸浮微粒的風險知識擴大............................................................ 97 2.濃度標準誰來定，政治壓力還是科學數據 .................................................................. 98 2.1來自公民社會的政治壓力 ....................................................................................... 98 2.3 標準最後的訂定 .................................................................................................... 104 3. 自動監測與手動監測的爭議 ...................................................................................... 112 3.1 相互的不信任 ........................................................................................................ 112 3. 2環保署的回應 ........................................................................................................ 115 3.3 手動監測委託學者的回應 .................................................................................... 117 4. 政府需要更重視外部的風險論述 .............................................................................. 120 第六章 結論 ......................................................................................................................... 123 1. 研究發現 ...................................................................................................................... 123 2. 研究限制與未來發展可能 .......................................................................................... 126 參考資料： ........................................................................................................................... 12