建立高可靠度的科技治理網絡：以高雄氣爆災後政府因應行動為例

Abstract

2014年7月31日高雄市發生大規模氣爆災難，造成人員、財損嚴重。高雄氣爆事件揭櫫我國在治理具危害的科技系統上長期的問題。災後中央政府提出修改「工廠管理輔導法」、「可燃性高壓氣體」、「公共危險氣體物品及可燃性高壓氣體設置標準暨安全管理辦法」，以及建立「三層管理模式」，該模式採中央政府立法監督，由地方政府執行監理檢查，配合業者「自主管理」；高雄市政府則制定「高雄市既有工業管線管理自治條例」、「高雄市既有工業管線維護辦法」作為政策回應，以制度化工業管線的管理與災害預防。有鑑於此，本研究透過文獻回顧、次級資料分析和訪談等方式探討高雄氣爆事件的災難脈絡，以及後續政府治理工業管線的政策行動。從系統結構、操作組織和管制制度三個層面分析氣爆的災難脈絡，研究發現緊密相依的管線系統、複雜的都市環境、忽略警訊的操作組織與去鑲嵌的業者「自主管理」是形塑災難的複雜因素。災後政府針對工業管線的治理上則遭遇安全管制、政治衝突、缺乏專責單位和政策不確定性四個層面的困境。本研究於梳理災難脈絡並探討災後治理的困境後，藉由高可靠度網絡的概念提出政策建議，以提供我國未來在石化專區設立、地下工業管管線全數遷移人口稠密地區等決策確立之前，在推動治理工業管線上的參考。

A series of gas blast occurred on July 31th, 2014, in Kaohsiung, Taiwan, following propene leaked from the pipeline which was installed underground. After the deadly explosion, The Executive Yuan addressed new policies to reform counter-disasters mechanisms. Kaohsiung City Council also has passed an autonomous ordinance on the management of the city’s industrial pipelines. Kaohsiung gas explosion incident, the worst industrial catastrophe in Taiwan’s history, raises concerns how the government can govern the city’s industrial pipelines better to reduce our vulnerabilities to industrial disasters. This thesis analyzes Kaohsiung gas blast incident in three aspects: structures of technological system, organizational preconditions of operational organization and regulatory institutions. By learning more from failures of petroleum pipeline system and regulatory mechanisms, and examining the core weaknesses in the current management system, I would argue that government in Taiwan should organize interorganizational networks as high-reliability network to develop capacities to prepare better for the unexpected of hazard technological systems. Furthermore, this thesis would discuss the challenges of seeking reliability inherent to the existing system in the public sector.