本研究是國內少數以公民參與的觀點，探討環境正義落實，並以實際政策規劃佐以驗證。過去台灣公民參與政策規劃實例不多，甚至公民參與政策規劃意願薄弱，因為許多民眾不相信政府會採納他們的意見，總保持旁觀態度。同時，國內政策規劃模式並沒有提供公民參與機制，民眾不熟悉政策制定流程，也沒有相對專業背景，造成雙向溝通地方座談會流於形式。 政策規劃應以民眾為最主要利害關係人考量，利害關係人的意見應在政策規劃時就須納入考量並給予相對回應，以獲得政策合法性及追求政策支持度。環境正義的落實必須依賴政策的落實，同時也提供利害關係人相對的資訊，以供作出最有利判斷，否則推動環境正義的行動，僅淪為空談。本研究以臺北縣新莊市中港大排整治個案為研究背景，將規劃過程政府與當地民眾如何互動，詳實記錄並分析。冀望透過本計畫執行，能提供未來政府決策參考。同時能激起民眾公民意識覺醒，提升公民參與政策規劃意願，進而落實環境正義。 關鍵字：環境正義、利害關係人、公民參與 / This research is one of the few researches which aims to discuss the application of environment justice and verify it with a real example of policy planning from the point of view of citizens participation. In the past, there are few examples of citizen participating in policy-making. Moreover, citizens are not willing to take part in public policy-making, for the public doesn’t believe the government will adopt their opinions, is not familiar with the process of policy-making and doesn’t have professional knowledge about policy-making. As a result, the local forums between the government officials and the public cannot produce positive outputs. Policy planning should regard the public as main stakeholder and the opinions of the “stakeholders” should be taken into account to get the legitimacy of policies and their support form the public. The application of environment justice depends on the application of policy. The government should offer the “stakeholder” necessary information so that the public is able to make the best judgment. Otherwise, the actions to carry out environmental justice will be in vain. Taking the renovation of Zhong-Kang Drainage channel in Xin Zhuang as a example, this research records and analyzes how people in Xin Zhuang interact with the government during the process of policy-making in details. This research aims to become a model for the government in future by the execution of the project. Meanwhile, the research would like to activate the awareness of citizenship and increase the public’s willingness to participate policy in planning and carry out the justice of environment. Key word: environmental justice, stakeholder, citizen participation

依相關文獻探討得知，我國國家公園概以全盤西化的僵硬、不適宜的法令以及與原住民的衝突等原因，使得國家公園的存在與發展，產生多面向之問題。 本文研究之目的如下： 一、藉當前國家公園警察執行公權力現況之探討，發現問題並尋求解決之道，以符當地民情及環境正義，或提供有志者作進一步研究。 二、以平地型、高山型國家公園警察之執勤與各國家公園管理處政策之推行，探討各國家公園執法及政策推展之成效，用資策進。 三、從環境正義之觀點，提出能兼顧自然保育與保障原住民權益的建議方向，建構雙贏策略，使國家公園永續發展。 本研究以我國各國家公園為研究範圍，先就「利害關係人」 （stakeholder）對國家公園與環境正義互動之探討、分析，建構出國家公園警察執法與環境正義之相關問題，採用深度訪談法及兼以實地觀察法進行實證調查研究，同步藉由實地觀察法，探討問題之核心，取得實證調查結果資料與文獻資料對照，最後以「利害關係人」觀點進行綜合分析，依分析結果得出目前國家公園警察執法與環境正義間之整合，建構雙贏策略。 本研究之實證研究結果並配合引用相關文獻之建議如下： 一、對政策及管理層面之建議 （一）近程 1、強化國家公園警察執行功能。 （1）減少行政警察勤業務，有效發揮執法效益。 （2）建立環境義警制度，強化巡山護管功效。 （3）加強國家公園執法訓練，塑造警察專業形象。 （4）策進國家公園警察執行之公權力。 2、加強警察之人文教育。 （二）中長程 1、儘速增（修）訂現行不適法令。 （1）儘速配合修訂不適法令，俾利執法有據。 （2）擴大參與仿效設立緩衝區，保障當地住民權益。 2、導正利害關係人觀念認知。 二、對後續研究之建議 本研究囿於人力、物力，僅以我國雪霸、玉山、太魯閣（高山型）及陽明山、墾丁、金門（平地型）之六個國家公園為探討範圍，建議後續研究者可以擴大研究範圍，以擴及至我國林政單位之森林地域林班地與警政署森林暨自然保育警察隊為研究領域，將可更深入探討環境正義之各類相關性議題。 關鍵字：國家公園、警察人員、國家公園警察、公權力、環境正義。 / It is learn in accordance with relevant documents, our country national park laws and regulations stiffness due to totally Westernization, inopportune laws and conflict of aboriginal cause that the existence and development of the national park face more questions. The purpose that this text studies is as follows: First, make use of the police of national park at present to carry out state authority, the discussion of the present situation of state power, found the problems and seek the solution, in order to agree with local public sentiment and environmental justice, or provide the interested ones to do further study. Second, with the implementation of the policy of national park headquarters of every country on duty of the level land type and alpine type national park police, probe into the effect that enforcing the law and policy of every national park in order to urge on the progress of policy. Third, from the view of environmental justice, propose the suggestion direction that can give dual attention to the natural conservation and the safeguard aboriginals rights and interests, build and construct the win-win tactics, make the national park develop sustainable. This research regards every national park of our country as research scope, first , ‘the interested party’ ( stakeholder) is focused on the discussion, analysis of the national park interact with environmental justice, build and construct the relevant problems with environmental justice and the police of national park law enforcement, adopt the depth interview and concurrently observe on the spot to conduct the real diagnosis investigation and study, moving ahead simultaneously by observing on the spot, probe into the core of problem, obtains the real diagnosis investigation result material and compare with the literature materials, analyze synthetically with ‘the interested party’'s view finally, obtains at present the police of national park law enforcement and the environmental justice according to the analysis result the conformity, build and construct the win-win tactics. Real diagnosis of findings and suggestion the coordinate quotation correlation literature of this research is as follows: First, suggestion on the policy and management aspect. (1) Short range 1. strengthen the police of national park and carry out the function. (1) Reduce the administrative police's hardworking business, effective display law enforcement benefit. (2) Establishment the environmental volunteer police system to strengthen and patrol the mountain to ensure the efficiency of management. (3) Strengthen national park law enforcement training, mould police's professional image. (4) Promote the state authority that the police of national park carry out. 2. strengthen the police's humane education. (2) Medium-Long range 1. Amending the current inopportune laws and regulations as quickly as possible. (1) Amending inopportune laws and regulations as quickly as possible to enforce in accordance with the law. (2) Expanding participation and imitating and establishing the buffer zone, safeguard local aboriginals rights and interests. 2. Lead straight interested party's concept cognition. Second, suggestion on follow-up study. Due to limitation of research manpower, material resources, only six national parks are studied in this research including Shei-Pa, Yushan, Taroko (high mountain type) and Yangmingshan, Kenting, Kinmen ( level land type). Strongly suggest the follow-up researchers, in order to expand the research field to the forest region, forest class and forest and natural conservation police team of the policy unit of our country, can probe into all kinds of dependence topics of environmental justice more thoroughly. Key word: National park, the police personnel, the police of national park, state authority（or state power）, environmental justice.

本研究以環境正義理論為基礎，探討事業廢棄物掩埋場開發決策背後導致衝突肇因之環境不正義議題及衝突化解之道。首先，針對國內事業廢棄物處理政策的發展脈絡，構築出政府現階段解決事業廢棄物最終處置的思維，一則積極推動源頭減量、回收再利用；其次，又企圖鼓勵興建掩埋場解決事業廢棄物最終處置問題的雙軌併行政策，在缺乏整合的運作邏輯之下，能否發揮事業廢棄物減量、降低掩埋場設置需求的政策執行成效？繼而，在地方政府被賦予審議或核定環境開發治理權的轉變之下，應如何扮演該決策制訂與審議制度運作的角色，藉由「台南縣東山鄉事業廢棄物掩埋場」興建個案研究，探究掩埋場設置衝突事件之肇因，及地方住民、環保團體抗爭訴求，與開發業者、地方政府在個案申請設置或開發決策過程中所呈現環境不正義之關連性，並進一步推導出在地住民因環境權的被剝奪，而從事此抗爭運動所衍生「環境正義理念」的主張。 本研究結論指出，除環保署應積極整合事業廢棄物「源頭減廢、回收再利用」與「鼓勵掩埋場設置」兩政策之執行計畫及成效，俾能藉由減少廢棄物之產出，以降低掩埋場設置需求外；地方政府進行事業廢棄物掩埋場開發決策制訂前，應賦權民眾參與的機制，嚴肅看待開發過程所衍生不正義的問題，提高決策的正當性及公信力；同時透過開發審議制度及法令結構的變革，亦即賦予當地住民獲得充分資訊的權利、公開聽證的權利、民主參與的權利、協調開發單位與受影響的住民簽訂「環境保護協定」，以及要求事業機構負起調整生產結構的責任，作為實踐環境正義理念的方法，藉以改善環境決策品質及決策制訂的思維，俾作為地方政府部門從事掩埋場設施開發決策，消彌環境不正義衝突爭議之參考，以提供另種紓解民眾衝突爭端的途徑。 / In this study based on the theory of environmental justice ,by industrial waste landfills lead to the development of decision-making behind the cause of the conflict of environmental injustice issues and the way to resolve the conflict. First of all, the cause for domestic waste disposal policy development context, the government resolved at this stage to build industrial waste final disposal of thinking, an actively to promote the source reduction, recycling and reuse.Secondly, an attempt to encourage establishment industrial waste landfills to solve the problem of final disposal of parallel two-track policy, a lack of integration in the operation of logic, could appear of reducing waste, reducing landfills established of the policy effectiveness？then, in local government be given consideration or approved development and control of environmental, how to play with the consideration of the decision-making role. By " In Dongshan Township,Tainan County industrial waste landfills" the established of case study, probe into landfills established the causes of conflict, and local residents, environmental groups protested demand, and local government development of decision-making process in the present environmental injustice relevance, and further deduced in the right environment for the inhabitants of the deprived, while engaged in this social movements against by the derivative "concept of environmental justice". This study concluded that, the EPD should actively integrated industrial waste, "the source of waste reduction, recycling and reuse" and " encourage to establish of landfills " two policy implementation plan and effectiveness, achieved to reduce waste output and the need for establish of landfills . Local government for industrial waste landfills development decision-making, should be to empower public participation, look at the development process is derived from the issue of injustice, enhance the legitimacy and credibility of the decision-making.At the same time, through the development checkup system and changes in the structure of act, which gives local residents the right to receive adequate information, the right to public hearings, the right to democratic participation, coordinated developer and residents affected by the signing of environmental protection agreements and require producer assume the responsibility of the production structure adjustment, as a practical way the concept of environmental justice, to improve the quality of decision-making, it could serve as a local government departments engaged in the development of decision-making landfills facilities, eliminating the environmental injustice a reference for controversial conflict , to provide another kind of dispute the way the conflict.

針對「有害廢棄物污染與環境管制政策」的論述主軸，本研究除歷史地探究戰後台灣有害廢棄物污染問題的形成脈絡之外，並選擇「桃園RCA土壤及地下水污染事件」為研究個案，探究在該等污染事件發生之後，如何被定義及解決的具體過程，並闡述地方社區民眾的訴求與心聲；最後則是總結前述研究結果，論述研究個案的政策意涵，並針對「土壤及地下水污染整治法」以及相關的環境管制政策建構提出批判性的思索。 首先，本研究指出有害廢棄物污染此一結構性的問題其實反映了戰後台灣所謂「優良投資環境」的利基之一－相對低廉的環境成本，表現於外便是長期放任與形式化的環境管制。並且，在相關污染事件陸續爆發的1990年代，事態的嚴重性已然超乎政府的能力所及，故而在「私有化」的政策取向之下，政府企圖利用各種「獎勵投資」的策略，例如稅賦減免、放寬 / 簡化土地使用管制、國營事業土地釋出、加強查緝以穩定廢棄物的供給量等措施，藉以扶植民營廢棄物清理業者，並且巧妙地將廢棄物的生產與整體的資本擴大再生產連結了起來。可以預見的是，此一策略或許在短期內可以稍微抑止事業廢棄物流竄的問題，然而卻更進一步地深化了「大量生產－大量消費－大量棄置」的資本主義運作邏輯，絲毫無助於更積極地從源頭減少污染危害的產生。 其次，透過對「桃園RCA土壤及地下水污染事件」的考察，本研究指出戰後台灣具有強大相對自主性的政府雖然以各種政策工具創造出所謂「優良的投資環境」，但是彼等所依恃的環境管理體系偏重「事後管制」而無力於「事前預防」，使得鄰近污染場址的社區民眾、農民與勞工成為環境污染的直接受害者。在跨國資本「賺飽就跑」的移動邏輯，並將污染惡果轉嫁予地方社區之下，後者無異是與總體之「發展」脫勾的。繼而，觀諸污染整治之過程可知，該污染事件徹底地被設定為一個純粹的「技術」問題，由於風險詮釋權力的偏差動員，政府與資本藉由特定科學知識的引介與轉譯所啟動的「技術動員」，其實亦代表了特定「利益動員」之實現。換言之，在「權力動員 → 技術動員 → 利益動員」的過程中，與資本再生產攸關的變更開發利益被普遍化、極大化，地方社區民眾所可能遭致的污染危害則是被選擇性地詮釋，甚至於忽視。此一過程除體現出環境風險「在地化」的脈絡，亦隱含著環境污染所肇致的決策權力不平等，因為民眾們失去了直接參與瞭解，並決定攸關其生活之行動方針的權利與能力。而該等污染事件除指涉環境惡物的生產與分配外，更是和勞動安全、民眾健康、性別平等、社區發展、權力分派等關乎社會正義的問題密切相關，是一個「多元不平等」的公共議題，要解決環境污染所肇致的不平等，便不能忽略其他的社會不平等問題。 基於前述研究發現，本研究提出下列政策建議： 一、在相關污染整治的問題方面： 當污染場址受限於整治技術無法回復至先前狀態，污染行為人亦不須就損害負起賠償責任時，讓受污染土地變更使用應是可以接受的原則，否則土地的閒置將使地方社區再次成為最無辜的犧牲者。不過，為了使環境風險與開發利益能夠得到衡平的考量，整治決策及土地使用變更審議過程中應適度納入民眾參與機制，其意見亦應被尊重與採納，而不是被選擇性地忽略或詮釋，以強化決策之正當性。 二、 在「土壤及地下水污染整治法」之修正方面： （一）管制手段應考量整體工業體系之生產過程，俾積極地從源頭減少 污染危害。 （二）應以「無過失賠償責任」作為追索污染責任之原則，而溯及既往責任應擴及污染之損害賠償責任，賠償範圍亦應增列自然資源之損害。 （三）在公害行政救濟上，相關之污染受害賠償法制、污染補助（償）基金及環境損害強制責任保險等制度，應儘速予以研訂。 （四）在資訊公開與民眾參與方面，應在肯認受污染影響之地方社區民眾擁有「充分資訊的權利」、「公開聽證的權利」、「民主參與及社區團結的權利」、「賠償的權利」，以及「污染清除與被破壞環境復原的權利」等公民權的基礎之上進一步予以強化。 （五）中央政府應適度下放人力、財力與權力，以強化地方政府執行污染防治或整治之能力。 （六）結合污染整治與土地再利用之原則應以更積極、實質的民眾參與為主導。 三、在相關環境管制政策之建構方面： （一）為了打破決策權力不平等所加諸於弱勢者的「環境不正義」，本研究主張政策的制定 / 執行通常是一種主觀的價值選擇，而非如科技決定論者所謂的客觀事實之認定。在一個民主的社會裡，選擇的權力應該保留在民眾的手中，也唯有經由民主的參與才可以促進理性目標的達成。 （二）在相關污染事件的整治過程中，科技專家的角色應該不再是決策的「仲裁者」或「決定者」，而是各種民眾參與機制的「促進者」；並且，彼等的基於高深的統計數據或模式之論述典範亦應稍作轉化，俾使民眾能夠更清楚地瞭解科學論述的意義，而非反倒成為其參與之障礙。 （三）正因有害廢棄物污染危機實源自於資本的生產決策（其將污染惡物之處理成本外部化），進而在既有環境管理系統無法控制經濟事務的窘境之下，唯有藉由民眾參與的不斷實踐來尋求「生產的民主化」，讓資本自行擔負起應有的處理責任，才是解決當前困境之道。質言之，民眾參與除了技術層次的探討（如哪些人參與？如何參與？參與程度為何？）之外，更應肯認的是其實質定位與意義（如決策權力的賦予或分享、風險論述之地位平等）。