論設置太陽光電之民眾參與：以漁電共生之環境與社會檢核為中心

21世紀以來，為減少極端氣候、地緣政治影響國家發展與衝擊社會經濟，世界各國莫不以發展再生能源為目標，期待再生能源能解決上述困境。在此國際潮流下，我國也訂下2025年再生能源發電占比20％之目標，其中太陽能發電量更希望於2025年達20百萬千瓦。為達此目標，我國修訂電業法及再生能源發展條例，鼓勵民間再生能源發電業者投入發電業，自此，再生能源發電業者積極尋找適合場域以建置發電機組，卻屢生與當地居民的衝突。若聚焦於太陽光電，社會質疑聲浪莫不在於光電機組阻礙農業或當地社區發展，及影響野生動物遷徙、形成環境公害等。究其緣由，或係因設置太陽光電發電設備，若非位於重要濕地且裝置容量達2,000千瓦者，即無須實施環境影響評估、欠缺民眾參與機制所致。為求盡力達成再生能源發電目標，經濟部等主管機關與公益團體、縣市政府積極磋商，在未修正環境影響評估法及其子法的前提下，於魚塭場域率先推出環境與社會檢核機制，該機制以設置太陽光電之優先性，對全國魚塭劃分區位，對不同區位開發行為設計相異電業執照審查機制，並在區位劃分與開發行為程序中設計民眾參與機制，以求太陽光電與環境、社區共存，並促進設置太陽光電。然而，設置太陽光電屬於環境事務，國際上對於環境事務民眾參與，存在奧爾胡斯公約，環境與社會檢核民眾參與機制若與該公約與相關我國法制內容不符，是否足以保障在地民眾參與權限，即有疑義。本文將以介紹環境與社會檢核機制為開展，探討民眾參與之意義與理論基礎，並以上述公約、相關外國及我國法制為標準，檢討環境與社會檢核民眾參與機制，是否存在應修正之處，並對該機制提供修正建議，期待能藉此消彌該機制民眾參與保障不足之疑慮。

關鍵字

環社檢核；太陽光電；民眾參與；奧爾胡斯公約；行政計畫

並列摘要

In the 21 st. century, countries worldwide are developing renewable energy sources to mitigate extreme weather events and geopolitical impacts.Taiwan aims for renewable energy to contribute 20% of power generation by 2025, with a specific target of 20 million kilowatts of solar power. To achieve this, Taiwan revised the Electricity Act and Renewable Energy Development Act to encourage private investment in renewable energy. However, conflicts with local residents have arisen as renewable energy operators seek suitable sites, with concerns raised about the impact on agriculture, community development, wildlife migration, and environmental pollution. The issue may arise from the exemption of solar photovoltaic power generation facilities from environmental impact assessments and public participation, unless they are located in important wetlands or have a capacity of 2,000 kilowatts or more. Efforts have been made by authorities, NGOs, and local governments to introduce Environment and Social Evaluation of Aqua-Solar to achieve renewable energy goals. However, since the installation of solar photovoltaic system falls under environmental affairs, international conventions such as the Aarhus Convention and other foreign or domestic law regarding to public participation in environmental matters must be considered. If the Environment and Social Evaluation do not align with the content of relevant regulation, it raises doubts about whether it is sufficient to fulfill the participation rights of public. Starting with introducing the content of Environment and Social Evaluation, and exploring the significance and theoretical basis of public participation, this article will compare international conventions, relevant foreign and domestic regulations, to review Environment and Social Evaluation and to determine the amendment with regards to public participation. By providing amendments to the regulation, this article hope to address concerns about inadequate provision of public participation in the installation of solar photovoltaic system.