鑲嵌於管制政策制度的科學政治：以VOCs、PM2.5為例

Abstract

運用科學知識在當代環境管制政策幾乎已屬常態。然而，科學卻不一定能有效解決環境污染問題。本研究探討雲林六輕石化廠區的揮發性有機物（VOCs）空氣污染問題，發現運作二十多年的六輕，其排放之VOCs數值，至今尚未釐清，但企業仍不斷擴廠，引發當地健康風險問題；同時，國光石化的環評中，PM2.5（細懸浮微粒）引發重大政治爭議，民間提出對抗性科學論述影響決策方向，後續，更促成相關管制法規通過。\n 在上述管制科學爭議中，本文採用新政治科學社會學所提供的制度、網絡與權力，與環境決策知識建構的途徑觀點，探討雲林石化廠區所排放的揮發性有機物（VOCs）、懸浮微粒（PM2.5）相關之管制科學爭議。運用次級資料分析法、田野調查以及深入訪談法，嘗試分析強調科學循證作為基礎的管制政策，何以仍落入管制失靈的窘境？本文探討兩個個案，其不同調的科學數字如何依循管制制度生產、傳遞及運用？其中，VOCs排放數字如何被各個政治行動者賦予政治性意涵，進而延宕政府管制的能力？甚而導致府際間嚴重衝突？而PM2.5的對抗性科學論述是如何被生產、傳遞乃至公共化？相關之政策網絡如何有效地將PM2.5的管制政策推入政治議程中，成為正式法規的一環？ \n本研究發現，在VOCs個案中，基於污染物的特性、石化廠區的龐大營運複雜度、以及企業為管制資訊之主要來源等因素，使VOCs排放具有相當大的科學不確定性。不過，現行制度將這些科學不確定性切割成一場又一場對於企業資訊的審查，對於掌握確切污染狀況極其有限。在PM2.5個案中，在幾個重大政策窗事件出現之前，民間社會已有一定的知識建構基礎。而重大政策窗事件如六輕工安大火、國光石化興建以及2011年總統選舉等，促成不同社會網絡連結，協助、生產出對抗性論述，並結合公眾媒體的廣泛傳播特性，將相關科技風險知識公共化，終使得PM2.5管制法案成為正式規範之一。

Scientific knowledge has been commonly employed for making environmental regulatory policies. This thesis aims at analyzing the contamination problems resulted from Volatile Organic Compounds (VOCs) released by the Six Naphtha Cracking Complex; it is discovered that the emission of VOCs remains a mystery after two decades of operation. However, the industrial expansion plan continues and has done a severe environmental and health destruction to the local community. Meanwhile, PM2.5, Fine Particulate Matters also triggered political controversies in the Environmental Impact Assessment process of Kuokuang Petrochemical Plant, the Eighth Naphtha Cracking Project(8th naphtha). The civil society has raised the opposing argument on the PM2.5 matter in terms of health impact, thereby influencing the direction of policy making and passing the regulations. \nIn light of the controversies of regulatory science, this thesis adopts the perspective of New Political sociology of Science (NPSS), which substantiates the approach of institution, network and power, and other aspects of knowledge construction to analyze the emission of VOCs and PM2.5 in the petrochemical field. Moreover, secondary data, field research, and in-depth interviews are utilized to analyze these regulatory predicaments. \nIt is discovered in the cases of VOCs, the scientific uncertainty is composed of the characteristics of VOCs, the complexity of petrochemical plant’s operations and the main regulatory information is generated by industries. Nevertheless, the regulatory institution just divided the scientific uncertainty into the tremendous conferences which peer-reviewed the information from industries. Furthermore, this regulatory institution hinders the true conditions of pollution from being known. In the meantime, in terms of PM2.5, the general public has had a solid knowledge pertaining to the critical national matters, such as several fire disasters of 6th naphtha, the policy of 8th naphtha, and the presidential election in 2011. Moreover, these policy windows promote the connection of social network and assistance, and accordingly generate the opposing discourse. The technology risk-related knowledge has also been conveyed by the mass media, thus ultimately enacting the PM2.5.