台灣政策環境影響評估制度分析:以台灣能源政策為例

Abstract

政策環境影響評估制度(簡稱政策環評)在歐盟制定了政策環評指令後(2001年)，被各國應用在更多的實際案例上。政策環評制度目前在台灣已累計一些經驗(實施過30個案例)，包含作成徵詢意見、補正中還有已退回的案件。其中，能源開發政策環評屬於少數的全國性，牽涉利益相關人甚廣的案例。從一開始政策研擬，到福島核災後的撤回，以及撤回後相關單位仍然在做許多的準備工作，包含了各種替代方案研擬、數場專家會議、範疇界定會議以及公開說明會。本研究選取的案例為福島核災後，能源局於內部已完成的能源開發政策環評報告書(包含2015年開完分區說明會)的版本，但並無送進環保署。此版本為目前能源政策環評的最新版本(至2019年)。研究的主要目標為探討目前政策環評在應用上的限制，包含兩大層面，一為衝擊評估方法的不成熟，二為政策規劃中環境思考與整合的挑戰。第一個層面本研究整合生命週期評估法於政策環評流程，並探討政策規劃、範疇界定會議以及衝擊評估上的整合效益。第二個層面則利用深度訪談及模板分析法，訪談21位能源開發政策環評的利益關係人，探討目前政策環評程序中，環境思考的挑戰以及如何進一步強化環境思考的效益。

Strategic environmental assessment (SEA) has been implemented in many policies in the European Union since 2001. In Taiwan, SEA has been implemented for 28 cases since 2001, which includes various types of policies. National energy policy is the most challenging type. There are three most important steps in SEA process: alternative planning, scoping, and impact assessment. However, the current limitation of method application affects the effectiveness of SEA. In this case, life cycle assessment (LCA) is integrated with SEA for clarifying the role of LCA in whole SEA process. The method of combining LCA and SEA has been developed and is applied in a case of Taiwan's energy policy. Benefits from LCA in alternative planning, scoping, and impact assessment steps are explored. However, integrating SEA and policy planning processes is challenging owing to institutional challenges and/or political problems. We aimed to explore the challenges of this integration process through in-depth interviews with core stakeholders in Taiwan energy policy making. Our results reveal three main types of challenge related to policy planning, SEA implementation, and difficulties in dealing with environmental issues. The first includes the policy planning model, transparency in the policy planning process, and controversial issues clarification; the second includes the different types of SEA purposes, unclear feedback on policy planning, and public participation limitation; the third includes a lack of knowledge of brokerage processes, scientific uncertainty, the role of the Taiwan EPA (TEPA) for environmental thinking, and the influence of local information in policy planning. The results of this study can be applied to countries that use impact-oriented SEA (currently the most common type of SEA) and consider environmental issues during the energy policy planning process