環評制度中的專家會議－被框架的專家理性

Expert Meetings in the Environmental Impact Assessment Process: The Framed Expert's Rationality

杜文苓(Wen-Ling Tu)

《臺灣民主季刊》 9卷3期 (2012/09) Pp. 119-155

https://doi.org/10.6448/TDQ.201209.0119

摘要

面對複雜難解的環境與科技風險問題，政府部門常倚賴專家評估，做為決策參考依據，使專家在現代風險決策中，扮演著舉足輕重的角色。但越來越多的研究顯示，憑恃專家的風險管理模式，也有許多的侷限。在台灣，環保署於2008年在環評專案審查過程中創設專家會議機制，希望以「公民參與、專家代理」方式，解決環評重大爭議，但實施至今，成效眾說紛紜。為瞭解專家會議於環評制度內的運作課題，本文檢視近年來幾件重大環評爭議中之專家會議，分析專家審議中的科學知識產製過程，討論專家在此機制中的角色定位，從而解析現行制度程序設計背後所隱含之風險詮釋與治理觀點。研究設計上，我們透過焦點座談與深度訪談汲取專家會議與會人士的經驗與觀點，進行第一手資料的研讀分析，並輔以相關會議記錄以及剪報等二手資料的蒐集整理，嘗試呈現政府環境風險的管理模式與制度特色。研究初步顯示，現行專家會議制度設計，並未能突破環評專案審查中的科學知識生產困境，而其功能與位階的定位不明，更將「專家會議」置放在一個與「公民參與」衝突的尷尬位置。本文進一步釐清現行制度安排的價值預設與運作困境，並在提升環評決策品質的前提上，指出制度調整與改善方向之建議。

關鍵字

風險管理 ； 專家 ； 環境影響評估 ； 科學知識 ； 公民參與

並列摘要

The government often relies on expert assessments as the basis for their decision making reference when faced with the intricate environmental and technological problems. But a growing number of studies have indicated that expert reliant risk management models are fraught with many limitations. Even so, experts still play a pivotal role in influencing the assessments and judgments of the decision makers and the public during the modern risk decision-making process. In Taiwan, the EPA has developed the ”expert meeting” mechanism in the EIA review process since 2008, hoping to resolve major environmental disputes with the ”citizen participation-expert representation” approach. But the effectiveness of this approach has remained controversial since its implementation. To understand the issue of how the expert meetings operate within the EIA system, this article investigates the expert meetings during the major EIA controversies; to examine the scientific knowledge production process, discuss the expert's role in the decision making mechanism, and to analyze the risk interpretation and governance viewpoint hidden behind the current system model. Through the in depth interviews and focus discussions on the experiences and viewpoints of the meeting experts and participants, with supplementation of relevant meeting minutes, newspaper clippings, and other secondary data, this paper intends to present the government's environmental risk management model and characteristics. The study revealed that the institutional design of existing expert meetings has failed to produce better scientific knowledge for environmental assessment. The ambiguity of its function and position has further placed ”expert meeting” in a conflicting and awkward position against ”citizen participation.” This article further recommends reform directions and system adjustments of the EIA process under the premise of quality improvement.

並列關鍵字

risk management ； expert ； environmental impact assessment (EIA) ； scientific knowledge ； public participation

參考文獻

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