本文以中石化舊台鹼安順廠戴奧辛污染個案為例，試圖探究褐地重建政策中的兩大議題：褐地居民的實際需求與公民參與。探討重點分為兩大部分，第一是藉由大規模問卷調查，了解安順廠址污染區居民的實際需求，並探討目前政府針對當地的5年13億照護政策與居民實際需求之間的落差。問卷調查以社會福利理論為基礎，從基本生活的經濟條件、人力資源的維持與再利用、以及社會偶發事件的事前預防與事後照護三個面向來發展題項。第二部份則是分析公民參與在褐地重建過程中的重要性，並討論經由公民參與所產生的政策卻不符合居民需求的理由。此部分將從社區居民的參與動機，以及政府、社區居民、意見領袖、環保學者之間的關係架構來分析。本研究結果顯示，現行政策在家戶的長期經濟能力、居民的環境教育、未成年者的心理創傷、以及社區的人口老化等等問題上，皆不符合居民需求，而之所以經由社區公民參與而形成的政策卻仍無法符合居民需求的理由，則與污染社區特質和以環保學者與意見領袖主導的公民參與模式有關。

This article intends to discuss two important issues, citizen participation and policy gap, in redeveloping brownfield. The first part of this study analyzes the shortcoming of existing compensation policy and social services specifically provided for residents living in a severely polluted community surrounding An-Shun PCP Manufacturing Plant. Through a sizable survey conducted between March-April 2008, this study defines the needs of residents and then analyzes in what points existing policy diverges itself from residents’ true needs. The second part of this paper tries to examine brownfield citizen participation and explain how public participation can drive to a policy gap, a gap between existing policy and residents’ true needs. The research results show that existing policies overlook the following issues occurred in the polluted community. Firstly, long term poverty of some households need to be reduced. Secondly, residents need to be better informed about community pollution so that they can understand how to protect themselves. Thirdly, trauma of youngsters caused by pollution needs to be reduced by professional mental counseling. Fourthly, aging problems in the community needs to be mitigated. Moreover, this study found that the above policy gaps may be caused by an environmentalists-and-opinion-leaders-led citizen participation that was build upon a network relationship among the government, community residents, environmentalists, and community opinion leaders.