當前聯合國、歐盟及美國對全氟與多氟烷基物質之管理策略與執行

Abstract

全氟與多氟烷基物質 (Per- and Polyfluoroalkyl Substances, PFAS) 為一族種類繁多的人造化學品，從 20 世紀初被合成以來，被作為防污、防油及界面活性劑，廣泛應用在用在工業與商業之中。直到 2000 年，美國主要的 PFAS 製造商 3M 公司 (Minnesota Mining and Manufacturing Company) 與美國環境保護署 (United States Environmental Protection Agency, USEPA) 達成協議，承諾將淘汰全氟辛烷磺酸 (Perfluorooctanesulfonic acid, PFOS) 的製造和使用。以 3M 的自我管制 (Self-regulatory) 聲明為契機，國際對 PFAS 的污染問題日趨重視，斯德哥爾摩公約於 2009 年將 PFOS、其鹽類及全氟辛烷磺醯氟 (Perfluorooctane sulfonyl fluoride, PFOSF) 納入附件 B 列管，UNEP 成立的國際化學物質管理策略方針 (The Strategic Approach to International Chemical management, SAICM) 亦隨後將 PFAS 列為新興政策議題 (Emerging Policy Issue, EPI)，建議各國應優先採取行動應對 PFAS 的污染問題。 SAICM 最初成立的宗旨，係為健全管理化學品的整個生命週期，在 2020 年以前，最大程度地減少化學品的使用和生產對人類健康與環境之重大不良影響。遺憾的是，於 2019 年發表全球化學品展望第二版 (Global Chemicals Outlook II, GCO II) 報告指出，各國無法如期實現 2020 年以前將化學品與廢棄物的不良影響最大程度地減少之目標，於是 SACIM 在同年制定 2020 年以後的化學品與廢棄物之健全管理策略。為持續解決 EPI，UNEP 於 2020 年發布關注議題的評估報告，認為在 PFAS 的管理上，應加速淘汰斯德哥爾摩公約所規範的 PFAS；定期評估管理方法和現況，以達到淘汰長鏈 PFAS 之目的；以及促進定期之訊息交流，對未列入斯德哥爾摩公約的 PFAS 加速採取行動，以期過渡至更安全的替代品。 歐盟於 2019 年底提出綠色新政 (European Green Deal)，最終目標是在 2050 年以前達到氣候中和 (Climate neutral)，為促成計畫，並於無毒環境 (Toxic-free environment) 的願景下推動化學品永續發展策略 (Chemicals strategy for sustainability, CSS)，該策略將 PFAS 作為優先關注的化學品，以此展開各種行動，例如於 2022 年提議修訂化學物質和混合物分類、標示與包裝 (Classification, labelling and packaging of chemicals, CLP) 規章，並預告下一步的行動將會修訂化學品註冊、評估、許可和限制 (Registration, Evaluation, Authorization and Restriction of Chemicals, REACH) 法規，顯示歐盟以更系統化的方式管理 PFAS 之企圖心。 美國為應對 PFAS 污染最具經驗的國家之一，USEPA 於 2021 年發布之 PFAS 策略路線圖：環保署自 2021 年至 2024 年的行動承諾 (PFAS Strategic Roadmap: EPA's Commitments to Action 2021—2024)，以研究、嚴格及整治作為中心指引，輔以 PFAS 的生命週期管理、源頭管理、追究污染責任、彌補技術與資訊缺口，以及保護弱勢族群等五大原則，執行為期三年的 PFAS 管理策略。 我國缺乏足夠的天然資源，仰賴貿易出口賺取貿易順差，因此必須時刻注意國際化學品管理的法規趨勢，加之積體電路 (Integrated Circuit, IC) 為我國出口貿易額比重最大的貨品類別，半導體製程迄今仍缺乏非氟化替代品，故此我國有必要關注國際的 PFAS 管理策略趨勢。本研究將使用文獻整理的方式，回顧 PFAS 的定義、分類、物化性質、暴露及對人類健康的危害，再來蒐集並整理聯合國、歐盟及美國 2020 年以後對 PFAS 的管理策略趨勢，接著分析聯合國、歐盟及美國管理 PFAS 所面臨的挑戰，在取其精華，去其糟粕之後，參考 SAICM beyond 2020 制定的化學品與廢棄物管理的策略目標，提出我國 PFAS 管理策略的初步建議。

Per- and Polyfluoroalkyl Substances (PFAS), as a diverse family of synthetic chemicals, have been widely used in industries and commercial applications since their synthesis in the early 20th century for their anti-stain, anti-oil, and persistent properties. In 2000, the major PFAS manufacturer, Minnesota Mining and Manufacturing Company (3M Company), reached an agreement with the United States Environmental Protection Agency (USEPA) to phase out the production and use of perfluorooctanesulfonic acid (PFOS). This agreement, along with 3M's self-regulatory statement, led to increased global attention to PFAS pollution. In 2009, PFOS, its salts, and perfluorooctane sulfonyl fluoride (PFOSF) were listed under Annex B of the Stockholm Convention. The Strategic Approach to International Chemical Management (SAICM), established by the United Nations Environment Programme (UNEP), subsequently categorized PFAS as an Emerging Policy Issue (EPI) and recommended countries to prioritize actions to address PFAS contamination. The initial purpose of SAICM was to ensure sound management of chemicals throughout their life cycle and minimize the significant adverse effects of chemicals on human health and the environment by 2020. However, the Global Chemicals Outlook II (GCO II) report published in 2019 indicated that countries were unable to achieve the goal of minimizing the adverse impacts of chemicals and waste by 2020. Therefore, SACIM developed a sound management strategy for chemicals and waste after 2020. In 2020, UNEP released an assessment report on PFAS as a focus issue, suggesting the accelerated phase-out of PFAS regulated by the Stockholm Convention, regular evaluation of management methods and status, and promotion of regular information exchange to expedite action on PFAS not covered by the convention, with the aim of transitioning to safer alternatives. In late 2019, the European Union (EU) introduced the European Green Deal, with the ultimate goal of achieving climate neutrality by 2050 and promoting a toxic-free environment. As part of this vision, the EU initiated the Chemicals Strategy for Sustainability (CSS) and identified PFAS as a priority chemical. Various actions have been taken, such as proposing revisions to the Classification, Labelling, and Packaging of Chemicals (CLP) regulation in 2022 and announcing future steps to revise the Registration, Evaluation, Authorization, and Restriction of Chemicals (REACH) regulation. These initiatives demonstrate the EU's systematic approach to managing PFAS. As one of the countries with extensive experience in addressing PFAS contamination, USEPA released the PFAS Strategic Roadmap: EPA's Commitments to Action 2021—2024 in 2021. The PFAS strategic roadmap focuses on research, restrict, and remediate, supported by five principles: Consider the lifecycle of pfas, get upstream of the problem, hold polluters accountable, ensure science-based decision-making and prioritize protection of disadvantaged communities. Due to a lack of natural resources and reliance on trade exports to generate trade surpluses, Taiwan must constantly pay attention to the regulatory trends in international chemical management. Additionally, since integrated circuits (ICs) are the largest category of goods in terms of export trade, and the semiconductor process still lacks non-fluorinated alternatives, it is necessary for Taiwan to be aware of international trends in PFAS management strategies. This study will review the definition, classification, physicochemical properties, exposure, and health hazards of PFAS through literature review. It will then gather and organize the management strategy trends of the United Nations, the European Union, and the United States regarding PFAS after 2020. By analyzing the challenges faced by the research subjects and learning experience form them, this study will provide preliminary suggestions for Taiwan’s PFAS management strategy, taking into consideration the goals set forth in SAICM beyond 2020.