台灣空污治理的挑戰：反空污行動凸顯的未竟知識

Fragmentary Air Pollution Information and The Challenge of Environmental Governance

空氣污染問題複雜，一向被視為有高知識門檻的專業。要掌握空氣品質狀況所需釐清的政策知識，包含了排放源頭的污染物質，排放之後地形、風向以及擴散媒介的各項模擬，以及最末端的受體暴露與影響狀況。雖然空污對人體危害看似一個確定的知識，但從資訊、知識到政策決策之間的連接，似乎仍存在著重重阻礙。在此脈絡下，本文從空污相關知識產製課題與環境民主治理之研究視角出發，檢視台灣自2010年至2016年七年間的反空污倡議行動所帶出的幾個重要空污爭議，如何促使空汙風險意識從陌生到廣為人知，從而推進政府空污治理策略與修法的腳步。透過分析民間所掌握空氣污染的確定與不確定知識，本文討論在反空污行動中的問題建構，以及相關資訊需求與應用，進一步釐清既有空污資訊與知識生產的侷限，直指國家空污治理在資訊生產層次上的改進方向。

Air pollution problems are very complex and regulatory science is full of scientific uncertainty. To understand air pollution problems, we need the following information: (1) pollutants from the emission source; (2) diffusion path simulation; and (3) the affected and changing status of the receptor. Although our knowledge that air pollution affects human health appears certain, there are myriad obstacles to connecting information, knowledge and policy in this area. This paper examines Taiwan's anti-air pollution initiatives between 2010 and 2016 from the perspectives of the production of air pollution-related knowledge and of environmental governance. Important debates over air pollution generated by these initiatives mobilized public consciousness of the risks posed by air pollution, and thereby prompted steps by the government to develop an anti-air pollution strategy and to revise relevant laws. The paper discusses how those initiatives highlighted the difficulties and limitations of current policy knowledge in clarifying and solving environmental disputes. The author further analyzes certain and uncertain knowledge of air pollution constructed by civil society. By examining the framing of air pollution problems and the process of inquiries and applications for information made by anti-pollution campaigns, the study's conclusions point out the limitations of knowledge production and suggest improvements to air quality governance.