環評知識的政治角色－檢視六輕健康風險評估爭議

The Political Role of Scientific Knowledge in the Environmental Impact Assessment: Examining the Health Risk Assessment Disputes of the 6th Naphtha

杜文苓(Wen-Ling Tu) ； 施佳良(Chia-Liang Shih)

《臺灣民主季刊》 11卷2期 (2014/06) Pp. 91-138

摘要

台塑六輕於1989年設廠於雲林麥寮，迄今運作約20年。六輕運作初期尚無環評法的規範，但台塑於1991年提出「六輕環境影響評估報告書」，作為回應社會對於六輕環境污染問題的評估與承諾，1994年環境影響評估法實施後，也曾對六輕進行包含經濟與環境的評估報告。六輕在二十年間不斷擴廠，通過多次環差分析與擴廠計畫的環評審查，至今已有54家工廠設立，成為世界數一數二之石化專區，並持續提出六輕五期的擴廠計畫。然而，自2010年起，六輕火災不斷，爆發多起工安與公害事件，引起社會高度關注，六輕設廠所造成的環境影響與健康風險問題，受到社會高度檢視。從後續發生諸多問題看來，環境決策體系內的審查評估，似乎未能達到環境預警與減緩損害之目的。本文因而想要探究，六輕環境影響評估決策所憑藉之知識基礎究竟為何？這些政策相關之環境知識如何被產出與運用？何以環評審查所生產之專業建議無法有效控制在地的環境損害與健康風險？本研究從政策過程中環境知識建構的探索出發，分析目前環評過程中的知識建構問題，在眾多六輕環評議題中，聚焦於健康風險評估相關爭議。透過多重資料來源的蒐集，包括六輕環境影響說明書、相關之會議紀錄與剪報資料、各單位委託相關之健康風險評估報告、非環評審查會議（包括環保監督小組以及六輕總體檢）之會議紀錄，相關人士的訪談，以及相關會議的參與觀察紀錄，本文將呈現環評過程中的知識建構圖像，並嘗試說明現行制度設計對環境知識生產多元性與在地性的侷限，從而指出環評制度設計改善之方向。

關鍵字

環境影響評估 ； 風險評估 ； 環境知識建構 ； 社會健全知識 ； 石化 ； 六輕 ； 台塑

並列摘要

The Sixth Naphtha Cracking Project (6th naphtha) of Formosa Petrochemical Corporation has been in operation for approximately 20 years. The Environment Impact Assessment (EIA) standards did not exist during the initial operation period of the 6th naphtha. However, the Formosa Petrochemical Corporation has proposed to publish 〞the 6th naphtha EIA Report〞 as an evaluation commitment in response to the public's concerns for the pollution problems caused by the 6th naphtha. After the implementation of the EIA Act in 1994, the government has also conducted and approved several EIA reviews on the 6th naphtha expansion projects. The 6th naphtha has been expending continuously for the last 20 years; it now has 54 factories, has become one of the largest petrochemical production zones in the world, and has also promoted its expansion plan continually. However, the 6th naphtha has experienced a series of fire disasters since 2010, which aroused great work and environmental safety concern from the public. The public has committed tremendous efforts to monitor the environmental impacts and health risks of the 6th naphtha. Considering the numerous problems that occurred in the 6th naphtha, it appears that the EIA system has failed to achieve the goals of early environmental disaster warning and damage mitigation. Thus, the objective of this paper is to investigate: (1) what knowledge influenced the EIA review decision-making process for the 6th naphtha, (2) how were the policy related environmental knowledge produced and employed, and (3) why were the expert recommendations produced in the EIA review process unable to manage local environmental damage and health risks effectively. By exploring the construction of environmental knowledge during the policy making process, this study analyzes the knowledge construction problems faced by the present EIA process, and especially focuses on the health risk assessment related controversies among the numerous 6th naphtha related EIA topics. This paper presents a portrait of environmental knowledge construction during the EIA process and aims to demonstrate how the design of the existing policy system limits diversified ways of knowledge production and discriminates against local knowledge and wisdom. Finally, based on the results of this study, the researchers make recommendations on the directions of improvement for the EIA system.

並列關鍵字

Environmental Impact Assessment (EIA) ； risk assessment ； environmental knowledge construction ； social robust knowledge ； petrochemical ； the 6th naphtha ； Formosa Plastic Corporation

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