我國政策環境影響評估制度之研究---以工業區設置為例

THE LEGAL INSTITUTION OF STRATEGIC ENVIRONMENTAL IMPACT ASSESSMENT IN TAIWAN---CASE STUDY OF INDUSTRIAL ZONE ESTABLISHING

林木興(Mu-Xing Lin)

指導教授 ： 陳慈陽

共同指導教授 ： 陳明燦(Ming-Tsann Chen)

國立臺北大學/法律學院/法律學系/碩士(2011年)

摘要

我國為預防及減輕開發行為對環境造成不良影響，藉以達成環境保護之目的，於1994年公布環境影響評估法（以下簡稱環評法），依據同法第4條對環評的定義，環評的類型可分為政策環評與開發行為環評，然而在現行法下問題叢生：政策環評案件自2001年迄今只有5件有審查結論，開發行為環評又頻生行政訴訟案件。

研究的目的在於從環評制度類型化的探究，進而探求環評制度功能與作用如何發揮。擬從環評制度中探究政策與開發行為環評在制度功能上的分工，開展對於政策環評的討論，並藉此檢視其在法律上之適用、試圖進行與相關法律的規整。此外，在現行之法秩序立場上，對於我國政策環評法制之相關案例進行爭點整理與綜合評析。

理論基礎包括公共行政與政策上之觀點、工程與管理上之觀點，但是在論述上，著重並回歸到法律上的觀點。在研究方法上採用法釋義學、演繹歸納、比較法、法政策，其中比較法的討論對象，係以美國法為主。

對於主要研究成果的概述：一、政策環評應實施程序之間的關連性高，宜建立程序之間的關連性並規範完備，而我國現行政策環評制度在程序規定上仍有很大的補充與修正的空間，例如不實施環評者無罰則、公眾參與和資訊公開之密度與強度不足、範疇界定之矩陣表設計忽略評估過程…等等。此外，政策環評與開發行為環評之間應建立連動性，使環評制度符合效能的要求；二、基於該制度的本質，在公眾參與、行政機關間協調合作上，應較開發行為環評更為注重，但現行法規定卻是相形不足；三、我國政策環評制度主要的法源依據有環境基本法、環境影響評估法、行政程序法，並得在法律不備與平等原則的基礎上，類推適用開發行為環評制度；四、針對工業區設置方針、中部科學園區四期計畫進行案例分析以實證理論，例如要發揮環評制度的體系性功能，須考量「工業政策案的政策環評、工業設置計畫案的政策環評、場址替代方案的政策環評、工業區開發行為環評」等規範結構之組成部分；五、修法建議：居於開發行為環評上位的政策環評制度，若是規範完備並符合法律明確性原則、課予政策研提機關對於決策的理由負有說明義務、有事後追蹤監測機制並貫徹，在其之後實施開發行為環評時，可減少社會爭議並加速開發行為之規劃與進行，並同時達到環境保護的目的。總而言之，與其對於環評制度進行類型化的探究，不如進而強調環評制度功能與作用的發揮。

關鍵字

層序系統 ； 預防原則 ； 國家保護義務 ； 決策 ； 多階段行政上預測決定 ； 法律明確性原則 ； 說明義務

並列摘要

In 1994, Taiwan government announced “Environmental Impact Assessment Act” (EIA Act) to prevent and mitigate the adverse impact of development activity on the environment in order to achieve the goal of environmental protection. According to Article 4th of the same act, the EIA could be arranged into 2 classes as “EIA of government policy” and “EIA of development activity”; however, there are many problems produced under the existing administration of law.

The purpose of this study is to explore from the classification of EIA, and then to research on how to fulfill the functions and effects of the EIA institution. Examine the functions dividing of “the 2 classes of EIA” carefully in the legal institution of EIA in Taiwan to develop the discussion of “EIA of government policy”, further survey the legal adaptation to government policy, and get relevant laws together to arrange them in order. In addition, on the position of the existing administration of law, find issues out from related cases and do comprehensive analysis.

The theoretical base contain not only legal viewpoint, but also viewpoints of public administration and policy, and engineering and management; however, the discussion focuses on and returns to legal viewpoint. The research methods used here are legal interpretation, deduction and induction, comparative method, and legal policy. Among those methods, the discussed subject of comparative law is mainly American Law.

The main results are as following. Firstly, there are high correlations between the procedures whose EIA of government policy should be implemented, and the correlations between the procedures should be established and regulated completely. Besides, there should be a gearing between EIA of government policy and EIA of development activity to make EIA institution more efficient. Secondly, based on the nature of the institution, “EIA institution of government policy” needs more concentrations on public participation, and cooperation between administrative agencies than “EIA institution of development activity”, but more inadequate under the existing administration of law. Thirdly, “EIA institution of development activity” could directly adapt Environmental Basic Act and EIA Act, reason by analogy to adapt a part of “EIA institution of development activity”, and adapt Administrative Procedure Act. Fourthly, case study of Iindustrial zone establishing policy, and the Central Taiwan Science Park Phase IV project were done. Finally, the amendment was proposed: If EIA of government policy, which is superior than EIA of development activity, could be regulated completely, stick to principle of legal clarity and definiteness, place policy-proposing agency under an obligation to explain, and have ex post tracking and monitoring mechanisms to be implemented, in its later execution of “EIA of development activity”, the social controversy may be reduced. Besides, the planning and proceeding of development activity could be accelerated, and at the same time the purpose of environmental protection could be achieved. Overall, we could rather put emphasis on how to fulfill the functions and effects of the EIA institution further than research on the classification of EIA.

並列關鍵字

Tiering System ； Precautionary Principle ； The Protective Obligation of State ； Decision Making ； Multi-Staged Administrative And Predictive Decisions ； Principle of Legal Clarity And Definiteness ； The Obligation to Explain.

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