民間團體參與的弔詭： 以「塑化劑」和「毒澱粉」風險管制為分析

The Conundrum of Civil Society Participation: Analysis of Risk Regulation in Taiwan's “Plasticizer" and "Tainted Starch" Cases

吳佩盈(Pei-Ying Wu)

指導教授 ： 周桂田

國立臺灣大學/社會科學院/國家發展研究所/碩士(2015年)

https://doi.org/10.6342/NTU.2015.00534

摘要

近年來，台灣接二連三爆發重大食品安全事件，造成人們對食用安全之恐慌擴散，對政府管制之信心受挫。而由於我國長期以來管制模式仰賴「專家決策」，但現代社會所面對的決策往往屬於高度不確定性與高度複雜性的「後常態科學」範疇，故啟發本文探究台灣食品安全管制之模式。

由於食品安全事件類型繁多，本文乃聚焦在化工原料進入食品原料的「違法食品添加物」使用之爭議，並以2011年「塑化劑」與2013年「毒澱粉」事件作為實例，從二起事件發生的脈絡，觀察政府、業者、民間的三方回應，檢視我國食品安全管制之模式，深入分析我國管制的風險，指出我國管制模式乃偏向科學實證與貿易導向，即便近年來因為社會關注度的提高，在法律上做出了相當程度的修訂，但仍屬於WHO預警國家之弱預防至中預防的預防類型。

偏重單一領域的專家決策，以及僅以科學實證作為決策依據，顯然不足以面對當代「後常態科學」的爭議，然而近年來我國政府即便有納入民間團體參與之相關規範，但本文透過訪談民間團體實際參與政府決策的經驗，發現我國決策體系並未能夠落實納入「擴張同儕社群」審查之多元價值與常民參與，以致造成政府與民間、科學與社會之間的感知落差，從而提出我國風險管制要能夠納入多元專家、常民參與決策之建議，唯透過透明的資訊流通、平等的互動溝通、及全民共同監督，始才能打造食品安全管制體系。

關鍵字

食品安全 ； 後常態科學 ； 預防原則 ； 風險溝通 ； 擴張同儕社群審查 ； 塑化劑 ； 毒澱粉

並列摘要

The main objective of this study is to reflect the loopholes of food safety regulations in Taiwan.
In recent years, Taiwan hit by a series of food-related scandals which trigger the public panic and crush the public confidence in government regulation. Taiwan government relies on “expert decision”, being difficult to refine regulations with high uncertainty and high complexity in the “post-normal science” area.
Due to the multiple criteria of food safety, this research only focus on the controversy of using illegal industrial chemicals as food additives in Taiwan. It examines the ” Plasticizer” event and the“Tainted Starch” event, observe the reply of the government, the industry, and the public through the context of the examples, and to analysis the risk of the regulation in Taiwan deeply. This research recognizes that Taiwan’s regulation mode is prone to the trade-led and base on science evidence; even the Legislative Yuan amended the law to a stricter regulation in response of social concern. But the regulations of food safety are still mostly limited from the weak precaution to moderate precaution.
It is insufficient to handle the difficult situation of post-normal science by depending on few experts in specific fields and some scientific evidence. Even the government amended the regulation including the public during the policy-making process.
After the interviews with various NGOs on their involvement in the government policy-construction, this research concludes that the policy-making process could not achieve the lay participation and the multiple value within the institution of the policy-making design. Neither will the government makes the “Extended Peer Communication” function real. It leads to the perception gap between government and civil society.
To sum up, this study suggests that the policy-making process should include multiple experts and the lay to share their experience and express their views. The food safety regulation requires the public surveillance and constructs through food information which is from farm to table be transparent and to achieve equality in interaction.

並列關鍵字

Food Safety ； Post-normal Science ； Precautionary Principle ； Risk Communication ； Extended Peer Community ； Plasticizer ； Tainted Starch

參考文獻

行政院衛生署食品藥物管理局（2011）。〈食品添加物手冊〉。

行政院衛生署食品藥物管理局簡報（2011）。〈起雲劑中惡意添加塑化劑事件〉。

李丁讚（1997）。〈公共論述、社會學習與基進民主：對『食物中毒』現象的一些觀察〉，《台灣社會研究季刊》25：1-32。

李蜚鴻（2011）。〈違法添加塑化劑的省思〉，《健康世界》（201106）：31。

周桂田（1998）。〈現代性與風險社會〉，《台灣社會學刊》21：89-129。