Public Participation and Judicial Review to the EIA Public Participation and Judicial Review to the EIA Dispute of the Project of the 3rd Expansion of Dispute of the Project of the 3rd Expansion of

Central Taiwan Science Park (CTSP) Central Taiwan Science Park (CTSP) 從中科三期環評案談台灣的民眾參與及司法審查從中科三期環評案談台灣的民眾參與及司法審查

環境法律人協會環境法律人協會陸詩薇陸詩薇 律師律師Nov. 23, 2011Nov. 23, 2011

Press Conference , Oct. 15, 2010

( 圖片 : 環境資訊中心網站 )

部分投影片內容感謝林三加律師提供

Site of CTSP IIISite of CTSP III :: Ho-LiHo-Li DistrictDistrict中科三期位置圖中科三期位置圖 :: 后里七星農場后里七星農場

七星農場專供二七星農場專供二廠商使用廠商使用 : : *AUO (*AUO ( 友達友達 ))*Sunner *Sunner Solar (Solar ( 旭能旭能 ))

SSelectionelection ofof location_no alternatives location_no alternatives considerationconsideration:: 選址有疑義，基地選址通過斷層帶，選址沒有選址有疑義，基地選址通過斷層帶，選址沒有實質替代方案實質替代方案

Farmland Pollution andFarmland Pollution and FoodFood SecuritySecurity: : 基地位於大安基地位於大安溪、大甲溪上游，排放水非採灌溉水標準，且初期營運之放流水將溪、大甲溪上游，排放水非採灌溉水標準，且初期營運之放流水將排入牛稠坑溝，將造成廣大農田的污染（糧食安全的危機）排入牛稠坑溝，將造成廣大農田的污染（糧食安全的危機）

Fail to conduct health risk appraisalFail to conduct health risk appraisal （（ HRAHRA ）） :: 系系爭開發案並未進行健康安全風險評估爭開發案並未進行健康安全風險評估

IInsufficientnsufficient informationinformation f foror t thehe ”” Finding of Finding of NNo o SSignificantignificant IImpactmpact (FONSI)(FONSI) test”test” conclusion,conclusion, aa flawedflawed decisiondecision making making 環評結論係基於錯誤且不充分之資訊做成「無環評結論係基於錯誤且不充分之資訊做成「無重大影響，無需進入二階環評」結論，故有裁量濫用的瑕疵重大影響，無需進入二階環評」結論，故有裁量濫用的瑕疵

HighHigh CourtCourt andand SupremeSupreme CourtCourt withdrawnwithdrawn thethe EIAEIA decisiondecision

Controversial Issues:Controversial Issues: 11stst EIAEIA inin 2006 2006 中科三期中科三期 9595 年版之環評爭議問題年版之環評爭議問題 ::

ConductingConducting developmentdevelopment activityactivity AFTERAFTER thethe verdictverdict withdrawingwithdrawing EIAEIA :: 環評已被法院撤銷，仍環評已被法院撤銷，仍然繼續施工，如何能確實評估對環境的影響？然繼續施工，如何能確實評估對環境的影響？

CoarseCoarse andand HastyHasty H HRA,RA, nevernever i includesncludes bbackgroundackground riskrisk inin thethe calculationcalculation ofof ValueValue--at-Riskat-Risk ：：仍然粗糙草率的健康風險評估，未將健康風險仍然粗糙草率的健康風險評估，未將健康風險的既存背景值納入計算的既存背景值納入計算

TheThe serumserum levellevel ofof dioxindioxin inin Ho-LiHo-Li largelylargely e exxceedsceeds thethe averageaverage ofof thethe wholewhole country:country: 然然當地的汙染背景值已經非常高，后里居民血液戴奧辛濃度當地的汙染背景值已經非常高，后里居民血液戴奧辛濃度遠高於全國其他地區遠高於全國其他地區

Controversial Issues:Controversial Issues: 2 2eded EIAEIA inin 2010 2010 中科三期中科三期 9999 年版之環評爭議問題年版之環評爭議問題

FarmersFarmers fromfrom Ho-Li:Ho-Li: EPA,EPA, givegive usus anan answer,answer, howhow couldcould aa development development activity beactivity be legallegal withoutwithout aa validvalid EIA?!EIA?!

(Feb. 4, 2010)(Feb. 4, 2010)

Farmers Protest,

Feb. 4, 2010農民至環保署抗議

圖片 - 朱淑娟，環境報導部落格

中科三期大事記（中科三期大事記（ 1/41/4 ））July 31 2006

EIA approved 有條件通過一階環評

Jan 31 2008 EIA decision was withdrawn by the court

台北高等行政法院 96訴字第1117號判決撤銷環評審查結論

Feb.19 2008 :EPA appealed and agreed the construction

環保署上訴並同意廠商開始動工

May 12 2008 Farmers protest 農民抗議

Jan.21 2010 EPAs appeal is overruled by Administrative Supreme Court

最高行政法院 99年度判字第30號判決駁回環保署上訴

Jan.31 2010 EPA refused to order the cease of the construction

環保署表示不適用環評法第 14條、第 22條，拒絕命停工

中科三期大事記中科三期大事記 (2/4)(2/4)2010.Feb.4:

Farmers protest 農民北上抗議

2010.Feb.10

EPA posts the ads on 5 newspapers to attack the court judgments

環保署在五大報登廣告抨擊行政法院判決無效用、無意義、破壞環評體制

2010.April 2010.April ::

: EPA re-started : EPA re-started EIA review; and EIA review; and Farmers, lawyers Farmers, lawyers and NGOs requested and NGOs requested the construction the construction and operation must and operation must stop during the EIA stop during the EIA review review

環保署開始續行環評，環保署開始續行環評，農民律師環保團體要農民律師環保團體要求應先停工求應先停工

2010.May 2010.May 2727

EPA refused public EPA refused public participation participation

環保署把人民擋在門環保署把人民擋在門口，不讓人民參與環口，不讓人民參與環評會議評會議

2010.May 2010.May 31:31:

Farmers apply for Farmers apply for injunctions injunctions

農民聲請假處分及停農民聲請假處分及停止執行止執行

攝影 湯智凱

中科三期大事記中科三期大事記 (3/4)(3/4)2010.July 2010.July 31:31:

The court issued The court issued injunctions injunctions

法院裁定應命停工及停止執行法院裁定應命停工及停止執行

2010.Aug.2010.Aug.4:4:

Premier Wu Premier Wu guaranteed the guaranteed the construction construction won’t be affected won’t be affected by the courts by the courts

行政院長吳敦義表示保證廠商不用停工行政院長吳敦義表示保證廠商不用停工

2010.Aug.2010.Aug.10 :10 :

NSC announced NSC announced only CTSPO stops only CTSPO stops construction, AUO construction, AUO and Sonner Solar and Sonner Solar may continue may continue their their construction and construction and operation operation

國科會及中科管理局宣佈 國科會及中科管理局宣佈 ““停工不停產停工不停產

2010.Oct.2010.Oct.15:15:

Nine lawyers on Nine lawyers on behalf of farmers behalf of farmers filed a citizen filed a citizen suit against the suit against the EPA, NSC and EPA, NSC and CTSPO CTSPO

廠商停工公民訴訟起訴記者會廠商停工公民訴訟起訴記者會

中科三期大事記中科三期大事記 ((44//44))2010.July 2010.July 31:31:

The court issued The court issued injunctions injunctions

法院裁定應命停工及停止執行法院裁定應命停工及停止執行

2010.Aug.2010.Aug.4:4:

Premier Wu Premier Wu guaranteed the guaranteed the construction construction won’t be affected won’t be affected by the courts by the courts

行政院長吳敦義表示保證廠商不用停工行政院長吳敦義表示保證廠商不用停工

2010.Aug.2010.Aug.10 :10 :

NSC announced NSC announced only CTSPO stops only CTSPO stops construction, AUO construction, AUO and Sonner Solar and Sonner Solar may continue may continue their their construction and construction and operation operation

國科會及中科管理局宣佈 國科會及中科管理局宣佈 ““停工不停產停工不停產

2010.Oct.2010.Oct.15:15:

Nine lawyers on Nine lawyers on behalf of farmers behalf of farmers filed a citizen filed a citizen suit against the suit against the EPA, NSC and EPA, NSC and CTSPO CTSPO

廠商停工公民訴訟起訴記者會廠商停工公民訴訟起訴記者會

中科三期大事記中科三期大事記 ((44//44))2010.Aug.2010.Aug.3131

EPA approved the EPA approved the review of re-EIAreview of re-EIA

環保署再次強行一階段通過“鬼環評環保署再次強行一階段通過“鬼環評

2011.Jan.2011.Jan.2121

Farmers bring Farmers bring lawsuit to cancel lawsuit to cancel the new EIA the new EIA approval to the approval to the court, and apply court, and apply for injunction. for injunction.

農民提出環評二次撤銷訴訟農民提出環評二次撤銷訴訟

2011.Marc2011.March 1h 1

the Court issued the Court issued the injunction the injunction again.again.

法院再次裁定停止執行法院再次裁定停止執行

2011.Marc2011.March 2h 2

EPA and NSC EPA and NSC allowed the allowed the factories to factories to continue their continue their construction and construction and operation again. operation again.

環保署及國科會再次決定停工不停產環保署及國科會再次決定停工不停產

2011.Marc2011.March ~ h ~ presentspresents

Three major Three major lawsuits are lawsuits are still pending at still pending at the courtthe court

農民提出的三大訴訟至今仍繫屬法院審理農民提出的三大訴訟至今仍繫屬法院審理

EPA and Administrative agencies are bullying EPA and Administrative agencies are bullying Judiciary,Judiciary,which causes the farmers another 3 major lawsuits which causes the farmers another 3 major lawsuits

環保署的三大霸凌事件 與 農民的四大訴訟環保署的三大霸凌事件 與 農民的四大訴訟1.EIA Cancellation: 一次撤銷，農民勝訴確定

2.Confirmation of Invalid permit due to cancellation of EIA approval: 確認開發許可無效訴訟，最高行政法院審理中

* Injunctions: 假處分及停止執行，農民勝訴確定

3.Citizen suit for stopping the construction and operation of factories: 廠商停工公民訴訟，最高行審理中

* Injunction: 假處分，最高行更一審審理中

4.2nd EIA Cancellation: 二次撤銷訴訟，北高行審理中 *Injunction: 停止執行，北高行更二審審理中

What do the final judgments say?What do the final judgments say? First final judgment to cancel EIA First final judgment to cancel EIA decision.decision. 環評史上首次環保署環評審查結論被環評史上首次環保署環評審查結論被法院認定濫用裁量權而撤銷之確定案例法院認定濫用裁量權而撤銷之確定案例

Also, first injunction to freeze an Also, first injunction to freeze an EIA permit. EIA permit. 環評假處分及停止執行首例環評假處分及停止執行首例

Reconfirm the standards of judicial Reconfirm the standards of judicial review on EIA dispute. review on EIA dispute. 確立司法審查標確立司法審查標準準

FONSI test:FONSI test:「本案確有對國民健康及安全造成不利影響之虞，被告卻在開發單位未提出健康風險評估之情形下，遽認對國民健康及安全無重大影響，毋須進行第二階段環境影響評估，爰為有條件通過環境影響評估之審查，即構成未考慮相關因素，裁量濫用之違法。 」台北高等行政法院 96 年度訴字第 1117 號判決

Confirm the interest of public participation 確立公民參與的重要性

Clarification on the meaning of “public interest”: It should be refer to environmental values, rather than the interest of developers. 公共利益的內涵

Incomplete democratization Incomplete democratization 民主轉型陣痛期民主轉型陣痛期

Lack of public participation Lack of public participation 缺少民眾參與機制缺少民眾參與機制 UnfunctionalUnfunctionaliityty ofof checkcheck andand balancebalance ofof

powerpower 權力分立機制尚未成熟權力分立機制尚未成熟

SignificanceSignificance ofof PublicPublic InterestInterest LitigationLitigation 公益訴訟的重要性公益訴訟的重要性 Public interest litigation aims not Public interest litigation aims not

only at justice in the case at hand, only at justice in the case at hand, but also at SOCIAL REFORM. but also at SOCIAL REFORM. 進行社進行社會改革會改革

Significant Issues Significant Issues 環境訴訟中發現的重要議題環境訴訟中發現的重要議題

PublicPublic interestsinterests litigationlitigation andand democracydemocracy公益訴訟與民主公益訴訟與民主

Public interest litigation facilitates the Public interest litigation facilitates the consolidation of democracy in at least three consolidation of democracy in at least three ways: ways:

公益訴訟在以下三方面有助於民主鞏固公益訴訟在以下三方面有助於民主鞏固 Strengthening democracy: the three pillars of Strengthening democracy: the three pillars of

Aarhus Convention Aarhus Convention 強化民主社會的公民參與（奧胡斯強化民主社會的公民參與（奧胡斯公約）公約）

Activating civil society Activating civil society 活化公民社會活化公民社會 Convergence of international and internal human Convergence of international and internal human

rights norms rights norms 促進國際人權規範與內國法的匯流促進國際人權規範與內國法的匯流

WHY public interest litigation tends to use WHY public interest litigation tends to use international human rights norms as a legal weaponinternational human rights norms as a legal weapon??

公益律師愛用人權公約作為訴訟武器的原因公益律師愛用人權公約作為訴訟武器的原因 AsAs a ann attemptattempt toto breakthroughbreakthrough thethe statusstatus quoquo andand aa

supplementsupplement toto internalinternal norms norms 衝撞不夠完美的現狀衝撞不夠完美的現狀 AsAs anan repertoirerepertoire ofof socialsocial movement andmovement and aa resultresult ofof

cooperationcooperation betweenbetween transnationaltransnational NGOs. NGOs. 跨國跨國 NGOsNGOs 彼此學習觀摩彼此學習觀摩 AAss anan efforteffort toto breakbreak throughthrough T Taiwan’saiwan’s isolatedisolated

humanhuman rightsrights situation.situation. 突破台灣孤立於人權機制的困境突破台灣孤立於人權機制的困境

Public interests litigation and human Rights Public interests litigation and human Rights enforcementenforcement公益訴訟與人權實踐公益訴訟與人權實踐

Diplomatic isolation from all international Diplomatic isolation from all international human rights mechanismhuman rights mechanism

Through efforts of grass root NGOs, many Through efforts of grass root NGOs, many human rights norms are formally accepted human rights norms are formally accepted by the government.by the government.

The significance of using international The significance of using international human rights norms in local court: human rights norms in local court: localized law enforcementlocalized law enforcement

The enforcement of The enforcement of human rights normshuman rights norms

1967 International Covenant on Civil and Political Rights (ICCPR) and International Covenant on Economic, Social and Cultural Rights (ICESCR) were signed by Taiwan government

1971 Taiwan government lost membership in U.N.

Jan, 2007 Taiwan ratified CEDAW

March, 2009 Taiwan ratified ICCPR and ICESCR

April, 2009 Act to Implement the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights was passed.

The enforcement of The enforcement of human rights normshuman rights norms

Act to Implement the twoAct to Implement the two conventionsconventions

Art 2 Human rights protection provisions in the two Covenants have domestic legal status.

Art 3 Applications of the two Covenants should make reference to their legislative purposes and interpretations by the Human Rights Committee

Art 8 All levels of governmental institutions and agencies should review laws ， regulations, directions and administrative measures within their functions according to the two Covenants. All laws, regulations, directions and administrative measures incompatible to the two Covenants should be amended within two years after the Act enters into force by new laws, law amendments, law abolitions and improved administrative measures.

The plaintiffs cited General comment No. 15 of ICESCR, claiming that their right to water protected by the convention was threatened by the Central Taiwan Science Park whose EIA process was flawed.

The Court acknowledged that right to water shall be protected, but found that the plaintiff’s evidence was insufficient to prove urgency so as to justify the injunction.

CASE1CASE1: S: Suspensionuspension OrderOrder ofof thethe 33rdrd StageStage ofof thethe Central Taiwan Science ParkCentral Taiwan Science Park

The plaintiff cited No. 15 of ICESCR, claiming that The plaintiff cited No. 15 of ICESCR, claiming that under ICESCR, as well as Articles 18 and 20 of under ICESCR, as well as Articles 18 and 20 of Water Act, the use of water for agricultural purposes Water Act, the use of water for agricultural purposes enjoys priority over use for industrial purposes.enjoys priority over use for industrial purposes.

According to the government’s own data, the supply According to the government’s own data, the supply of agricultural use water has never reached 50% of of agricultural use water has never reached 50% of the requirement in the Zhi-Zhai-Bi Dike: yet they the requirement in the Zhi-Zhai-Bi Dike: yet they want to grant the science park 66,500 tonnes per want to grant the science park 66,500 tonnes per day.day.

The plaintiffs thus argue, the EIA decision, which The plaintiffs thus argue, the EIA decision, which granted the permission for the allocation and granted the permission for the allocation and transfer of water, should be cancelled.transfer of water, should be cancelled.

CaseCase 2:2: 44thth SStagetage ofof thethe Central Taiwan Science ParkCentral Taiwan Science Park

TheThe courtcourt statedstated that:that: ““TTaiwanaiwan isis aa developeddeveloped countrycountry ratherrather thanthan aa third-worldthird-world countrycountry andand thethe clausesclauses referrefer toto r rightight toto waterwater a arere notnot applicableapplicable herehere inin T Taiwanaiwan.. TheThe supplysupply ofof waterwater toto ensureensure humanhuman dignitydignity h hasas beenbeen satisfied…Thesatisfied…The plaintiffsplaintiffs werewere apparentlyapparently underunder thethe misunderstandmisunderstand thatthat wewe TaiwanTaiwan i iss aa thirdthird--worldworld countrycountry aabusingbusing thethe agriculturalagricultural useuse ofof water.water. T Theirheir allegationallegation thatthat t thehe depositiondeposition waswas inin conflictconflict w withith thethe internationalinternational conventionalconventional i iss thusthus ineligible.” (emphasis added)ineligible.” (emphasis added)

Meanwhile, the court cited the Aarhus Convention Meanwhile, the court cited the Aarhus Convention spontaneously, but misstated that “After taking the spirit of spontaneously, but misstated that “After taking the spirit of Aarhus Convention into consideration, we do appreciate the Aarhus Convention into consideration, we do appreciate the value of public participation. Therefore, we shall make an value of public participation. Therefore, we shall make an exception, allowing the residents exception, allowing the residents insideinside the science park to have the science park to have the standing in this court. (emphasis added)the standing in this court. (emphasis added)

CaseCase 2:2: 44ththstagestage ofof thethe Central Taiwan Science ParkCentral Taiwan Science Park

Till now, the courts are still quite conservative in environmental cases.

Still, it is significant to use international conventions as well as to file public interest litigations, because discussion itself, no matter good or bad, is an inevitable beginning for dialog between different agencies, and thus is beneficial for the convergence of human rights norms.

LongLong wayway toto gogo

Thank you.