國際上對農藥的管理方法與現狀

Abstract

農藥是任何化學或生物成分的單一物質或混合物，用於防止、殺滅、控制有害生物或調節植物生長。自1940年代有機化學農藥被成功合成後，數百種農藥陸續被研發出來，農藥市場蓬勃發展，為全球的糧食與人口成長奠定了基礎。雖然農藥能保護農作物不被害蟲損害，防除生活環境中的各類病媒，但農藥的使用亦為人類與環境帶來負面影響，在世界各地造成大量人類中毒事件，亦危及野生動物的生存。 為了遏止農藥的危害，聯合國以21世紀議程、國際化學品管理策略方針與後續的永續發展目標為全球農藥的管理指明前進方向。近幾十年來聯合國制定了許多文書與機制用以管理農藥，包括具法律效力的鹿特丹公約、斯德哥爾摩公約、巴塞爾公約、蒙特婁議定書、水俁公約與世界衛生組織的三項協定，此外還開發食品法典、國際農藥管理行為守則、全球化學品統一分類和標籤制度、病媒控制產品清單與高危害性農藥指南等管理工具供各國自願性採用。 這些文書與機制各自承擔不同的責任，鹿特丹公約、斯德哥爾摩公約、蒙特婁議定書與水俁公約明確地列出全球需要禁止與限制使用的農藥，巴塞爾公約規定了農藥廢棄物的運輸與處置，世界貿易組織的協定則與國際食品貿易、農藥貿易與農藥智慧財產權相關。在自願性的文書與機制方面，食品法典制定了農藥在食品中的最大殘留限量，國際農藥管理行為守則為世界各國提供農藥管理立法的參考，全球化學品統一分類和標籤制度統合了可以應用於農藥產品的標籤，高危害性農藥指南確立辨別高危害性農藥的標準，病媒控制產品清單則為各國的環境用藥提供安全高效的選擇。 美國主要根據聯邦殺蟲劑、殺菌劑及滅鼠劑法管理農藥，並授權美國環保署的農藥計劃辦公室監管全國的農藥。農藥登記是美國農藥管理最關鍵的流程，在登記時，美國環保署會篩除所有對人類健康或環境產生不合理負面影響的農藥，制定等同法律的標籤以規範使用者。美國實施了多項行動與計畫以管理國內的農藥，涵蓋內分泌干擾物、保護授粉者、保護瀕危動物、保護農業工作者與推廣有害生物綜合管理等多項領域。 我國至今仍面臨許多源於農藥造成的問題，於近年推廣的化學農藥十年減半行動亦成效不佳，因此本研究參考現行的國際管理方法，並比較美國的管理方法為我國的管理制度提出建議。本研究提出的建議，焦點集中在高危害性農藥、減低農藥使用的風險、野生動物保護、農藥的殘留容許量與國際參與。

Pesticide refers to any substance or combination of chemical or biological agents designed to repel, eliminate, or manage pests, or to regulate plant growth. Since the successful synthesis of organic chemical pesticides in the 1940s, hundreds of pesticides have been developed, flourishing the pesticide market and laying the foundation for global food and population growth. While pesticides protect crops from pest damage and control various vectors in living environments, their use also brings negative impacts on human health and the environment, leading to numerous poisoning incidents worldwide and threatening wildlife survival. To mitigate the hazards of pesticides, the United Nations has provided direction for global pesticide management through the Agenda 21, the Strategic Approach to International Chemical Management, and subsequent Sustainable Development Goals. Over recent decades, the United Nation has established numerous instruments and mechanisms to manage pesticides, including legally binding conventions such as the Rotterdam Convention, the Stockholm Convention, the Basel Convention, the Montreal Protocol, the Minamata Convention, and three World Health Organization agreements. Additionally, it has developed management tools like the Codex Alimentarius, the International Code of Conduct on Pesticide Management, the Globally Harmonized System of Classification and Labelling of Chemicals, Vector Control Product List, and the Guidelines on Highly Hazardous Pesticides for voluntary adoption by countries. These instruments and mechanisms bear different responsibilities: the Rotterdam Convention, Stockholm Convention, Montreal Protocol, and Minamata Convention explicitly list pesticides that need global prohibition or restriction, while the Basel Convention stipulates the transportation and disposal of pesticide waste. The World Trade Organization agreements relate to international food trade, pesticide trade, and pesticide intellectual property rights. Regarding voluntary instruments and mechanisms, the Codex Alimentarius sets maximum residue limits for pesticides in food, the International Code of Conduct on Pesticide Management provides legislative references for countries worldwide, the Globally Harmonized System of Classification and Labelling of Chemicals standardizes labels applicable to pesticide products, the Guidelines on Highly Hazardous Pesticides establish criteria for identifying such pesticides, and the Vector Control Product List offers safe and effective environmental medication options for countries. In the United States, pesticide management primarily relies on the Federal Insecticide, Fungicide, and Rodenticide Act, authorizing the Environmental Protection Agency’s Office of Pesticide Programs to regulate pesticides nationwide. Pesticide registration is a critical process in US pesticide management, where the USEPA excludes all pesticides that pose unreasonable negative impacts on human health or the environment during registration, and enforces legally binding labels to regulate usage. The US has implemented multiple actions and programs covering endocrine disruptors, pollinator protection, endangered species protection, agricultural worker protection, and the promotion of integrated pest management. Our country still faces numerous pesticide-related issues, and the recent Chemical Pesticide Halving Action over the past decade has shown unsatisfactory results. Thus, this study references existing international instruments and mechanisms, comparing US management methods to propose recommendations for our national management system. The recommendations proposed in this study focus on highly hazardous pesticides, reducing the risks associated with pesticide use, wildlife protection, permissible pesticide residue levels, and international engagement.