從規範到實務：臺灣營造業的高溫調適與政策執行落差

Abstract

氣候變遷加劇了職業高溫暴露，促使各國政府推出熱危害預防政策。然而，對於這些由上而下的法規如何在現場被協商與落實，尤其是在以轉包為基礎的營造產業中，既有研究的關注仍然有限。本研究透過對15位臺灣營造產業之從業人員進行半結構式訪談、政策文件分析，及現場觀察，檢視營造工作中的熱風險如何被調適與治理、是否與政策存在落差。研究發現，「熱」是一種異質的風險，受局部微氣候、各工種特有的勞動型態、計薪方式、工程進度壓力等因素所形塑，並影響其調適彈性。然而，現行政策工具將熱視為標準化的危害，將營造工地視為均質的空間，亦忽略了營造工作複雜的組成。因此，政策未能完全捕捉熱暴露及產業鏈的真實條件，而風險得以沿著轉包的層層結構向下轉移。熱壓力的風險與調適的負擔因而被個人化，轉嫁至第一線工人身上。這需要政策重新想像作為治理對象的「熱」與「營造工地」，並設計能回應營造工作實際組織脈絡的熱危害預防措施。

Climate change has intensified occupational heat exposure, prompting governments to introduce heat hazard prevention policies. However, limited attention has been paid to how these top-down regulations are interpreted and implemented on construction sites, particularly within the subcontracting-based construction industry. Drawing on policy document analysis, on-site observations, and semi-structured interviews with 15 construction industry workers and practitioners in Taiwan, this study examines how heat risks are adapted to and governed in construction work, and whether gaps exist between policy and practice. The findings show that heat exposure varies across construction work. It is shaped by different work patterns across trades, pay basis, and pressure to meet project schedules. These factors also affect workers’ ability to adapt. However, existing policies tend to treat heat as a standardized hazard and construction sites as uniform spaces. This approach overlooks the different ways construction work is organized. As a result, policies do not fully reflect how heat exposure and risk are experienced and managed across the construction industry, while risks can be shifted downward through layers of subcontracting. The risks of heat stress and the burden of adaptation are therefore individualized and transferred to frontline workers. This calls for a rethinking of both “heat” and the “construction site” as objects of governance, as well as the design of heat hazard prevention measures that respond to the actual organizational context in which construction work is carried out.