因應氣候變遷調適之公民參與研究

Abstract

根據國際組織「德國監測」（Germanwatch）發布的「全球氣候風險指數」（Global Climate Risk Index 2018） 評比指出，臺灣的氣候風險指數在全球高居第7名 ，與前一年51名相比，名次大幅往前。此一評比結果顯示出臺灣因颱風、暴雨等極端天氣所造成的人員傷亡及財產損失風險正急遽增加。臺灣本來就屬於多種天然災害之高風險地區，而近年來極端事件發生的頻率與強度均有增加的趨勢。 德國學者Ulrich Beck在80年代首先綱要性的提出了風險社會學，指出現代社會系統因功能分化而日益複雜化，加上新興科技發展，致使每個專家僅能就其擅長的特定領域部分來解決問題，然而專業知識的本質即具有爭議性，過往從傳統社會過渡至工業社會其所仰賴的社會安全規範系統，在應付因結合知識、科技發展而致使高度複雜分化的當代社會系統及危險時漸露疲態，而人們亦逐漸開始質疑決策程序之正當性，且認知到科技官僚制度的有限性。欲解決前述當代風險社會的困境，必須採用新興風險治理典範，藉由參與式風險評估和溝通，達到跨領域的共識、提升決策的品質，且降低人民因對政府的不信任而產生紛爭之可能。 隨著近年來極端天氣事件增加，氣候變遷已形成不容忽視的隱憂。然身處風險社會底下，臺灣仍缺乏面對各種不確定性的危機意識，如同一般新興工業化國家一味追求開發與經濟發展，而忽略水源地與河川之環境保護。隨著氣候變遷程度加劇，天災對維生系統的潛在威脅也就越大。是以，本研究藉由探討政府部門在應對劇烈氣候變遷所導致之各種環境風險下，其採取之調適行為及決策過程是否符合風險治理核心理念，並以2015年蘇迪勒颱風水濁事件為例，發現公部門在決策過程中，仍因循代議政治體系的舊思維，無視現代風險社會充斥的不確定性，在決策上仍以科技官僚體系為中心，從研議過程階段即未廣納各界意見，亦未與專業團體、公民團體及地方社區進行充分的風險溝通。然氣候變遷調適行為此等重大政策實應納入公民審議的精神，以完善決策品質並降低人民與政府間衝突的可能性。

According to the “Global Climate Risk Index 2018” published by the international organization “Germanwatch”, Taiwan’s climate risk index ranks seventh in the world. Compared with the 51st place in the previous year, the ranking is significantly higher. The results of this comparison show that the risk of casualties and property losses caused by extreme weather such as typhoons and heavy rains in Taiwan is increasing rapidly. Ulrich Beck, a German scholar, first outlined risk sociology in the 1980s. He pointed out that modern social systems are increasingly complex due to functional differentiation, and the development of emerging technologies has caused each expert to solve problems only in specific areas of his expertise. However, the essence of professional knowledge is controversial. The transition from traditional society to industrial society has relied on the social security norms system. It has gradually become exhausted when dealing with the highly complex and differentiated contemporary social systems and dangers caused by the combination of knowledge and technological development state. The purpose of this study is to investigate whether the adaptation behaviors and decision-making processes adopted by government departments in response to various environmental risks caused by severe climate change conform to the core concept of risk governance. Therefore, taking the Soudelor typhoon water turbidity incident in 2015 as an example, it was found that in the decision-making process of the public sector, the old thinking of the representative political system was still followed, ignoring the uncertainty of the modern risk society, and the decision-making was still centered on the scientific and technological bureaucracy. However, such important policies as climate change adaptation behavior should be incorporated into the spirit of citizen participation to improve the quality of decision-making and reduce the possibility of conflict between the people and the government.