海岸國土利用及能源治理的衝突與調和――以美國海岸管理法的「聯邦一致性條款」為中心

The Conflict and Reconciliation of Interests Related to Land Use of Coastal Zone and Energy Governance: Lessons from the Consistency Reviews of the Coastal Zone Management Act of the United States

面對氣候變遷的劇烈影響，海岸地區的土地管理與環境保護是許多國家難以迴避的挑戰。伴隨再生能源的快速發展，土地利用、能源治理與海岸資源保育的利益衝突，也逐漸成為臺灣的重要課題。在考察我國計畫法制的演進之後，本文認為計畫法制的積極運用，已建構一定程度的法制基礎，可促成政策穩定及彈性。
經檢視海岸國土利用與能源治理的法制對應關係，本文闡述在能源及環境領域，透過計畫法制引導各主管機關密切互動協調，規劃長期發展策略的重要性。從比較法觀點的分析，本文發現：我國海岸管理法雖未完全採用美國聯邦海岸管理法（Coastal Zone Management Act, CZMA）的「聯邦一致性條款」（consistency reviews），但維持由上而下的審查及整合體制，毋寧更貼近我國國情。然而，對於整體海岸管理計畫等其他相關計畫的關聯性，各機關如何進行協調合作以調和立法目標所追求的不同價值，我國法制設計與行政實務之認識，似仍有待強化。
本文主張：儘早於能源設施選址過程的初期，釐清潛藏的利害關係或價值衝突，藉由計畫反映開發與環境保護之間的評估及妥協結果，將有助於同時兼顧環境與海岸開發的需求。如何繼續朝向能源轉型目標邁進，於計畫階段預先納入能源治理的國家利益衡量，美國CZMA 對我國實富有高度的參考價值。

Coastal zone management and environmental protection brought inevitable challenges to many countries when we face dramatic impact by climate change. With rapid developments of renewable energy, land use, energy governance and conservation of coastal resources also became critical issues to Taiwan. After reviewing the transformation of planning laws, this paper found that positive applications of the ideas of planning laws, laid legal foundations for policy stability and flexibility to some extent.
This paper scrutinized the connection between the regulations of coastal land use and energy governance, trying to expound how planning laws could play important roles for improving coordination and cooperation among different agencies, especially in their programming of long-term development strategies. From the perspective of comparative law, this paper found that the Coastal Zone Management Act of Taiwan did not completely adopt the consistency review mechanism as its counterpart of the United States. Instead, the current design of this legislation, with a top-down reviewing integration approach, could be more appropriate for Taiwanese situation. However, in terms of the relevance among comprehensive coastal zone management plan and other planning laws, it should be emphasized that agencies need to enhance their coordination when they reconciled various values set by legislative purposes.
This paper argued it is important to clarify the potential conflicts of interests and concerned values as the beginning process of energy facilities siting. It would be helpful to balance environmental protection and coastal development necessity with resort to the evaluation and compromise by planning regulations. To keep the pathway for energy transition of Taiwan, it was imperative to incorporate national interest of energy governance in early planning stages. It would be of great valuable experiences for us to learn from the CZMA of the United States.