事業廢棄物治理模式之困境與契機：旗山農地汙染案為例

Predicaments and Opportunities for Industrial Waste Governance: The Case of Agricultural Land Pollution in Qishan District

范玫芳(Mei-Fang Fan) ； 邱智民(Chih-Ming Chiu)

《台灣政治學刊》 23卷1期 (2019/06) Pp. 1-41

https://doi.org/10.6683/TPSR.201906_23(1).0001

摘要

事業廢棄物治理牽涉違法棄置不易建立危害因果關係，以及違法行為在法規適用上的爭論。本文以高雄旗山農地廢爐渣汙染爭議為個案，採取「新科學政治社會學」分析途徑，探究事業廢棄物治理所牽涉各層級政府單位與組織之間的權力運作，以及科學知識、規則與權力之間如何交織成動態且複雜的網絡。個案凸顯權力結構和資源不對等的問題，以及事業廢棄物治理的困境。居民發現高雄市旗山區圓潭池內因轉爐石級配料回填造成生物大量死亡且發出難聞氣味。環保局宣稱土壤檢測結果為沒有污染，而農委會農糧署檢測發現水質具強鹼性，且土壤重金屬超過土壤污染管制標準。政府單位對於轉爐石究竟歸誰管有不一致的說法；業者聲稱轉爐石乃煉鋼過程中的「副產品」，不適用「廢棄物清理法」。地方居民組成自救會並結盟公民團體展開一連串公民行動，包括：召開記者會、陳情抗議、環境監測與法庭訴訟，不僅形塑政策論述與科學知識生產，同時影響法規修正。本文展示事業廢棄物違法棄置的複雜網絡、規則重新制定與權力圖像轉換的動態性；在地知識與公民行動結盟在打造新的廢棄物治理模式扮演關鍵角色。

關鍵字

治理 ； 事業廢棄物 ； 公民參與 ； 新科學政治社會學 ； 在地知識

並列摘要

Government agencies often face the problem of clarifying causal relationships and regulatory applications in industrial waste disputes. This article uses the case of slag waste pollution on Qishan farmland in Kaohsiung City to explore the dynamic interaction process of power and scientific knowledge production among various levels of government agencies and related organizations. This article adopts the new political sociology of science (NPSS) framework to examine how scientific knowledge, rules and power interact with each other. The case highlights the problems associated with an unequal power structure and resources as well as deficiencies in current industrial waste regulations. Residents found that the Yuantan pool in Qishan was backfilled by slag, which caused a large number of organisms to die and emit an unpleasant smell. The local EPA claims that the soil test results indicated that there was no pollution. However, the Agriculture and Food Agency found that the water quality was strongly alkaline, in excess of the EPA's standard for soil pollution regulations. Different government agencies have competing opinions as to who should take responsibility. The industry claims that slag is a ＂byproduct＂ in the steelmaking process, and therefore the Waste Disposal Act does not apply to it. Following a series of protests and campaigns, local residents and self-help associations engaged in the production of scientific knowledge and lawsuits. Citizen participation has reshaped policy discourses and knowledge production processes, and has led to the amendment of regulatory policies. This article highlights the dynamics of the transformation of networks and power images in relation to the illegal dumping of industrial waste, as well as the crucial role played by local knowledge and citizen activism in the remaking of industrial waste goverance.

並列關鍵字

governance ； industrial waste ； new political sociology of science ； public participation ； local knowledge

參考文獻

中天新聞，2017，〈政府沒看見嗎？爐渣埋田剝四層皮！「一田四吃」業者賺飽〉，https://www.youtube.com/watch?v=pyQ7gdh5gsM，查閱時間：2018/05/13。Ctitv .2017. “Zhengfu mei kanjian ma? Luzha maitian bo sicengpi! ‘Yitian sichi’ Yezhe zhuanbao” [Didn't the government see it? The slag is buried in the field. “Kill two birds with one stone” The company earns much money]. (Accessed on May 13, 2018).

中聯資源，2018，〈旗山大林里轉爐石回填大坑洞的故事〉，http://www.chc.com.tw/chi.html，查閱時間：2018/02/02。CHC Resource Corporation. 2018. “Cishan dalinli zhuanlushi huitian dakengdong de gushi” [The Story of BOF slag buried pothole in Da-lin Villiage Qishan District]. (Accessed on February 2, 2018).

自由時報，2014，〈大林反爐渣回填，自救會長遭毆〉，http://news.ltn.com.tw/news/life/paper/816360，查閱時間：2017/09/26。Liberty Times. 2014. “Dalin fanying luzha huitian, zijiu huizhang zaoou” [Da-lin anti slag buried in the pothole, the leader of self-help association was beaten]. (Accessed on September 26, 2017).

行政院農委會，2015，〈轉爐石不得回填農地，違反者應依區域計畫法裁罰及限期改善〉，https://www.coa.gov.tw/theme_data.php?theme=news&sub_theme=agri&id=5310，查閱時間：2017/09/05。Council of Agriculture, Executive Yuan. 2015. “Zhuanlushi bude huitian nongdi, weifanzhe yingyi quyu jihuafa caifa ji xianqi gaishan” [BOF slag shall not backfill agricultural land, violators cut the penalty area and within a specified period in accordance with the Regional Planning Act ]. (Accessed on September 5, 2017).

呂國禎、陳良榕，2015，〈全台污泥亂倒，政府在哪？〉，《天下雜誌》，568：96-98。Lu, Kuo-chen, and Liangjung Chen. 2015. “Quantai wuni luandao, zhengfu zaina?” [Taiwan casual dumping of sludge, Where is the Government]. Commonwealth Magazine 568: 96-98.