從海洋政策觀點論臺灣離岸風場之發展

The Development of Offshore Wind Farms in Taiwan: A Marine Policy Perspective

「為因應氣候變化，落實「2025非核家園」目標，政府正大力推動離岸風電，由於過往臺灣並無離岸風場興建之經驗，在政策、規劃、審議和相關機制等環節，仍有諸多議題尚待探討。本文以離岸風場審議過程中，討論其在海洋生態系統衝擊、區位原則、環評審議、部會溝通、政策統籌、漁業補償法理、基礎研究調查、雷達遮蔽疑義、水下文化資產保存、法律與命令衝撞等方面衍生的爭議或疑慮，也呈現了臺灣離岸風場之發展，缺乏導引和周全的政策；由海洋政策的角度觀之，更顯現當前相關措施缺乏前瞻性、統整性與周延性，對於未來能源發展不利。爰此，本文建議政府應重新釐訂新的海洋政策，涵納離岸風電議題和具體作為，並提出強化海洋事務統籌、制定海洋空間規劃法律、訂定環境評估技術指引、凝聚漁電共生方案、研發風場替代方案、建立生態文化基金、持續培植人才與產業、建立穩建財務機制、建立資料庫與管理網絡等總體性建議，供後續研究與政府之參考。

In order to respond to climate change and achieve the goal of a “2025 non-nuclear homeland,” Taiwan is vigorously promoting offshore wind power. Because in the past Taiwan had no experience in the construction of offshore wind farms, there are still many issues to be explored in the areas of policy, planning, review and related mechanisms. This article exams the review process for offshore wind farms and illustrates emerging problems, including impact on marine ecosystems, location principles, environmental impact assessment, ministerial communication, policy coordination, fishery compensation jurisprudence, basic research and survey, radar shielding concerns, underwater cultural heritage preservation, and law and regulation conflicts. These issues show that the development of offshore wind farms in Taiwan is lacking a guiding and comprehensive policy. From the perspective of ocean policy, it also lacks foresight, integration and comprehensiveness, which is unfavorable to future energy development. This paper suggests that the government should reformulate its ocean policy to include offshore wind power issues and specific actions. In addition, the article proposes general recommendations such as strengthening integration of ocean affairs, formulating a marine spatial planning act, providing environmental assessment technical guidelines, facilitating fish and electricity co-existence, exploring wind farm alternatives, establishing an ecological and cultural fund, continuously cultivating professionals and industries, and establishing a stable financial mechanism as well as a data bank and management network for follow-up research and government reference.