驅不走達悟惡靈的民主治理夢魘：蘭嶼核廢遷場僵局的政策史分析

The Tao's Relentless Evil Spirits as the Nightmare of Democratic Governance: Examining the History of the Low-level Radwaste Disposal Policy in Taiwan

本文以科技民主治理的觀點，分析蘭嶼低階核廢遷不走的困境、遷場政策背後的政治脈絡，以及經歷三次政黨輪替的政策史變化。對照國際趨勢，本文認為我國近三十年的「低階核廢處置政策」大致符合從專業壟斷、政治介入、民主參與，再到龐大利誘等原則的趨勢，只是政府的專業壟斷企圖直到近年才實質減低，讓政治介入及民主參與獲得較為實質的抗衡空間。本文分析指出，台灣核廢處置政策在威權時代的管制科學治理型態，是由政府上對下單向決定，政策制定過程排除達悟族人參與，到了民主化後國家為回應達悟族人訴求，2006年立法院通過《低放射性廢棄物最終處置設施場址設置條例》（簡稱《選址條例》），以法制化作為解決策略，卻因為核廢政策無法有效處理不同利害關係者之間認識論的衝突，沒有強化科技溝通與信任的社會基礎，反而陷入條文無法實踐的治理僵局。我們認為後常態科學下的科技民主治理是一個不斷溝通、協商與審議的過程，必須將民意與專家的政策協調過程視為民主審議的過程，深化在地永續價值及實踐方法，才能有效回應後常態科學下的挑戰。

This paper examines the development of Taiwan's policy of low-level radwaste (LLW) disposal through the lens of democratic technology governance and Taiwan's political context. Taiwan's policy evolution has largely paralleled that of other countries, having transited through the various stages of professional monopolization, political intervention, eventually toward democratic participation, and later financial incentivization. Before the lift of the Martial Law, a top-down approach was adopted by the authorities in shaping the policy, on the ostensible basis of regulatory science, with the space for decision-making only gradually opened up for greater democratic participation in recent years. Therefore, such hierarchical decision-making in the policy formation process during the authoritarian era persisted and bypassed the involvement of the Tao people - the inhabitants of the Orchid Island where the LLW was stored. Although the ''Act on Sites for Establishment of Low Level Radioactive Waste Final Disposal Facility'' was passed in 2006 by the DPP government after Taiwan's democratization as a means to resolve the neglect of democratic participation, such regulatory amendments failed to account for the epistemological conflicts between different stakeholders nor did it strengthen the social foundation for technological communication and trust, resulting in further deadlock over the relocation of the LLW site through the late 2000s and 2010s. We argue in this paper that democratic technology governance under post-normal science involving a continuous process of democratic deliberation and consultation with the general public and experts is therefore central to the effective policymaking pertaining to LLW storage and disposal.