SECTION 1 INTRODUCTION
漁民權益暨環境永續中心（以下簡稱：漁環中心）係由財團法人環境權保障基金會於2021年設立，致力於協助漁民取得完整的環境資訊知情權、公民參與權以及法律近用權。
The Taiwan Ocean and Environmental Sustainability Law Center (hereinafter the “TOES”) was established by the Environmental Rights Foundation in 2021. It is dedicated to assisting fishermen in obtaining comprehensive rights to environmental information, the right to participate in civic affairs, and access to legal resources.
為促進漁業和離岸風電部門建立良好關係並鼓勵兩個部門之間的共存，漁環中心以英國「漁業與離岸風力及海洋再生能源聯絡組織」發布之「離岸再生能源發展最佳實務指南：漁業聯絡制度的建議」為基礎，參採我國法律法規，以及在地的漁民、政府機關與離岸風電部門之議合經驗，編製《台灣離岸風電與漁業聯絡指南建議》（以下簡稱：《指南》），其目標是促進漁業和離岸風電部門持續進行對話以解決互動過程中所產生的問題，並鼓勵海洋環境中的其他部門參與此過程。
To promote a positive relationship between the fishing and offshore wind sectors and to facilitate their coexistence, the TOES has compiled the “Recommendations for Guidance on Taiwan Offshore Wind and Fisheries Liaison” (hereinafter the “Guidance”) by referencing the “Best Practice Guidance for Offshore Renewables Developments: Recommendations for Fisheries Liaison” published by the UK’s “Fishing Liaison with Offshore Wind and Wet Renewables Group” (FLOWW); Taiwan’s laws and regulations; as well as the engagement experience of local fishermen, government agencies, and the offshore wind sector. The goal is to facilitate ongoing dialogues between the fishing and offshore wind sectors to address issues arising from their interactions and encourage the participation of other sectors in the marine environment in this process.
1.1 本指南之背景 Background of the Guidance
為實現2050年淨零目標，離岸風電部門正在迅速發展以減少國家對化石燃料的依賴並幫助確保能源安全。隨著離岸風電部門的發展，它必須持續瞭解在地方及國家層級對以海為生的其他人群產生之影響。
To achieve the 2050 net-zero target, the offshore wind sector is rapidly developing to reduce the country’s reliance on fossil fuels and help ensure energy security. As the offshore wind sector evolves, it must continue to grasp the impacts on other sea-based communities at both the local and national levels.
本指南是為離岸風電部門（包含開發業者及營運業者）和台灣西部沿岸及台灣海峽海域的漁業（包含商業性漁業和家計型漁業）所預備。本指南強調以合作的精神為兩個部門的長期共存奠定基礎。為實現長期共存，需要兩個部門之間進行有效的聯絡，以便充分瞭解潛在的影響、共存的機會和排擠的因素，並引導適當調適對策的建立。
This Guidance is prepared for the offshore wind sector (including developers and operators) and the fishing industry (including commercial and artisanal fisheries) in the western coastal areas of Taiwan and the Taiwan Strait. This Guidance emphasizes the importance of establishing a foundation for long-term coexistence between the two sectors in a cooperative spirit. To achieve long-term coexistence, effective coordination between the two sectors is necessary in order to fully understand the potential impacts, the opportunities for coexistence, and the exclusionary factors to guide the development of appropriate adaptation measures.
離岸風電部門有責任讓漁業適當瞭解從規劃階段開始到完全商轉的各項施工、營運和維護活動。鑑於漁業活動資料的機敏性，離岸風電部門應先與漁業建立互信關係，鼓勵漁業利害關係人與離岸風電業者合作制訂漁業影響減輕對策，實現兩個部門的共存。
The offshore wind sector has a responsibility to ensure that the fishing industry is adequately informed of all construction, operation, and maintenance activities from the planning phase until commercial operation. Given the sensitivity of fishing activity data, the offshore wind sector must first establish a trusting relationship with the fishing industry, encourage fisheries stakeholders to work with offshore wind sector to develop fishing impact mitigation measures, and achieve coexistence between the two sectors.
1.2 適用性 Applicability
本指南涵蓋了台灣西部海域目前已完工商轉、施工中和規劃中的離岸風場，亦即第一階段示範獎勵、第二階段潛力場址與第三階段區塊開發。
This Guidance covers offshore wind farms in the western waters of Taiwan that have been completed and commercially operated, are under construction, or are in the planning stages. They include the first phase demonstration incentives, the second phase potential sites, and the third phase zone developments.
本指南涵蓋了離岸風場計畫的所有海上設施，包括風機機組、海上變電站、陣列電纜、輸出電纜和連接全國電網之陸上變電站。本指南尚不包括浮動式風機與其他各類型的海洋能設施，這是由於這些設施所涉及的技術仍未成熟，對漁業的潛在影響可能更為巨大。當有需要時，本指南也將隨之調整。
This Guidance covers all offshore wind farm project facilities, including wind turbines, offshore substations, array cables, export cables, and onshore substations connecting to the national grid. This Guidance does not yet include floating wind turbines and other types of marine energy facilities, as the technologies involved in such facilities are still immature, and the potential impacts on the fishing industry may be even greater. This Guidance shall be adjusted as necessary.
1.3 台灣海峽海域的漁業活動 Fishing Activities in the Taiwan Strait
在本指南中，術語「漁業」泛指捕撈漁業和養殖漁業，及其附屬之加工運銷業；術語「漁業利害關係人」是指從事漁業或與漁業密切相關，並可能受到離岸風場影響的漁業社群；相當於《漁業法》所稱之漁業人及漁業從業人 。本指南是針對《漁業法》規範的漁業活動，不適用於使用遊艇、小船及非屬船舶之浮具（如波特船、橡皮艇等）的活動。
In this Guidance, the term “fishing industry” refers broadly to the catch fishing industry, the aquaculture industry, and their affiliated processing and marketing industries. The term “fishing industry stakeholder” refers to fishing communities that engage in fishing or are closely related to fishing and may be affected by offshore wind farms. This is equivalent to the terms “fishery operator” and “fishery employee” as defined in the Fisheries Act. This Guidance is applicable to fishing activities as regulated by the Fisheries Act. It does not apply to activities using yachts, small boats, or non-vessel floating objects (pontoons, rubber boats, etc.).
離岸風電部門應意識到在狹長的台灣海峽，漁業作業區域可能與數個離岸風場重疊；目前僅有的個案環境影響評估無法處理數個離岸風場產生累積效應，甚至連影響漁業的多樣性都未加以釐清。台灣海峽海域存在許多不同類型的漁業活動、使用不同類型的漁具及大小不一的漁船（筏）。由於活動型態、使用漁具與作業海域的不同，即使來自同一個漁港的不同漁業社群，關注的議題可能不相同。
The offshore wind sector should be aware that in the narrow Taiwan Strait, fishing areas may overlap with several offshore wind farms. The currently available individual environmental impact assessments (EIAs) can neither address the cumulative effects of multiple offshore wind farms nor clarify the diversity of impacts on the fishing industry. There are many different types of fishing activities in the Taiwan Strait, using various fishing gear and fishing boats (rafts) of different sizes. Due to differences in activity types, fishing gear used, and operating sea areas, even different fishing communities from the same fishing port may have other concerns.
漁業需要廣大海域，活動範圍可能超越縣（市）的行政區界線甚至國界。在台灣，《漁業法》中有關「專用漁業權」常被誤解、誤用。專用漁業權的定義為：指利用一定水域，形成漁場，供入漁權人入漁，以經營左列漁業之權：（一）採捕水產動植物之漁業。（二）養殖水產動植物之漁業。（三）以固定漁具在水深25公尺以內，採捕水產動物之漁業 。其中，漁業署給予各區漁會專用漁業權區的「一定水域」為「自平均低潮線起向外海延伸3浬」。漁民並不會只在所屬區漁會的專用漁業權區作業，而是依據自身漁船（筏）大小向更外海的區域尋求漁場。
The fishing industry requires vast sea areas, and its range of activities may extend beyond the administrative boundaries of a county (city) and even national borders. In Taiwan, the “exclusive fishing right” under the Fisheries Act is often misunderstood and misused. Definition of exclusive fishing right: the right to use a specific water area to form a fishing ground for fisheries access privilege holders to operate one of the following fisheries: (a) Catching or harvesting aquatic organisms. (b) Aquaculture. (c) Catching or harvesting aquatic animals with anchored fishing gears within the waters at a depth of twenty-five meters or less. Among them, the Fisheries Agency grants each regional fishery association an “exclusive fishing right” with a “specific water area” defined as “extending 3 nautical miles seaward from the mean low water line.” Fishermen not only operate within the exclusive fishing right area of their affiliated district fishery association but also seek fishing grounds in more offshore areas, depending on the size of their fishing boats (rafts).
在專用權漁業權區以外海域從事捕撈，則為《漁業法》的「特定漁業」 。漁業執照以離岸距離、而非行政區界線作為捕撈行為的限制，尤其對大型漁船而言，跨越縣（市）界線從事漁撈是長年的既存事實。區漁會並無法反應在其專用權漁業權區以外海域從事捕撈漁民的利益，更無法約束他們的行為。《國土計畫法》讓情況更加複雜：沿海各縣（市）政府名義上擁有從平均高潮線到領海外界線的廣大海域管轄範圍，卻連基本的調查都做不到、何況是規劃與管理。
Engaging in fishing activities in offshore waters beyond the exclusive fishing right area is considered “Directed Fisheries” under the Fisheries Act. Fishing licenses restrict fishing activities based on the distance from the shore rather than administrative boundaries. Crossing county (city) boundaries to engage in fishing has been a long-standing fact, particularly for large fishing vessels. The regional fishery association cannot represent the interests of fishermen who fish outside of their exclusive fishing rights area or regulate their behaviors. The Spatial Planning Act has made the situation more complex. Coastal county (city) governments technically have authority over a large area of sea from the mean high tide line to the outer limit of the territorial sea. However, they are unable to even conduct basic surveys, let alone plan and manage the area.
簡言之，各區漁會的專用漁業權區，只佔所在縣（市）管轄海域範圍的一小部分；在各縣（市）管轄海域範圍從事捕撈的漁民往往來自其他縣（市），這是完全合法、應予以保障。
In short, the exclusive fishing right area of each regional fishery association only accounts for a small portion of the territorial waters under the jurisdiction of the respective county (city). Fishermen who engage in fishing activities within the territorial waters of each county (city) often come from other counties (cities), and this is entirely legal and should be protected.
1.4 離岸風電與漁業中的各類角色 Roles in Renewable Energy and Fisheries
離岸風電和漁業聯絡議題與多個組織和利害關係人相關。
The offshore wind and fishing industry liaison issue is related to multiple organizations and stakeholders.
- 中央政府在因應氣候變遷的基礎上制定能源政策。《氣候變遷因應法》除了將國家溫室氣體長期減量目標設定為2050年達成溫室氣體淨零排放，也強調能源轉型必須也是公正轉型 。在海洋治理方面，儘管《海洋基本法》要求政府應制（訂）定海洋空間規劃之法規，因應海洋多目標使用需求、協調海域使用及競合、落實海洋整合管理。惟多年來相關海洋空間規劃法規始終並未建立，再生能源政策與漁業管理政策之間也未能取得平衡 。是以，本指南鼓勵離岸風電部門持續自主與漁業進行對話以尋求共存的可能。
The central government has formulated energy policies to address climate change. The Climate Change Response Act emphasizes that energy transition must also be a just transition in addition to setting the long-term national greenhouse gas reduction target of achieving net-zero greenhouse gas emissions by 2050. The Ocean Basic Act mandates the government to formulate regulations for marine spatial planning to accommodate various uses of the ocean, manage sea area use, and implement integrated ocean management. However, specific regulations for marine spatial planning in this regard have not been established for a long time. So, a harmonious equilibrium between policies governing renewable energy and those governing the fishing industry has yet to be attained. Therefore, this Guidance encourages the offshore wind sector to continue engaging in autonomous dialogue with the fishing industry to explore the potential for coexistence. - 許可機構發給進行離岸風場計畫所需的各類許可和同意書，其中與漁業有直接關連的應備文件有：環境部的環境影響評估許可、農業部漁業署的漁業主管機關同意證明文件及水產動植物繁殖保育區有關單位意見書或同意證明文件，以及直轄市、縣（市）政府的地方主管機關同意函。然而除環境影響評估的審查之外（見第四節「規劃階段的聯絡」），其餘審查程序並不公開，漁業利害關係人無從表達意見。
The licensing authority issues various permits and consents required for an offshore wind farm project. Among them, the required documents directly related to the fishing industry include the EIA permit from the Ministry of Environment, the consent certificate from the competent authority for the fishing industry, and the opinion or consent certificate from the relevant unit in charge of aquatic organisms breeding conservation areas, both from the Fisheries Agency of the Ministry of Agriculture, and the consent letter from the local competent authority of the municipality or county (city). However, except for the EIA reviews (see SECTION 4 LIAISON DURING THE PLANNING PHASE), the other review procedures are not public, and fisheries stakeholders have no way to express their opinions. - 航港局負責發布各類型航船布告，以及規劃風場航道及其航行指南。離岸風電開發及營運業者在進行海事工程之前必須事前告知航港局，請求其發布航船布告。有鑑於多數漁業利害關係人獲取、使用這些資訊的困難，離岸風電開發及營運業者應尋求其他有效傳遞資訊的方式。
The Maritime Port Bureau is responsible for issuing various types of Notices to Mariners(NtM), planning wind farm channels, and providing navigation guidance. Offshore wind developers and operators must notify the Maritime Port Bureau in advance before conducting maritime engineering projects and request that it issue NtMs. Given the difficulty most fisheries stakeholders have in obtaining and using this information, offshore wind developers and operators should seek other effective ways to convey information. - 開發業者是規劃、設計和建造離岸風場的公司；他們可以包括公用事業、專門的離岸風場計畫開發業者或技術開發業者。離岸風場計畫的股權，可能在風場完工之前就進行轉移。一旦風場完工、投入營運，開發業者可能繼續擁有該計畫的多數股份並成為營運業者。在其他情況下，開發業者可能會將其在離岸風場計畫中多（全）數股份出售給另一家公司來營運。由於台灣法規並未對離岸風場計畫的股權轉移並未予以過多限制，為離岸風場計畫申請環評的業者，可能並不是日後實際從事開發的業者。在任何時候，當離岸風電開發及營運業者將離岸風場計畫出售給第三方的情況時應告知漁業社群，同時所有過往與漁業社群達成之協議皆具有持續性和可轉讓性。
Developers are companies that plan, design, and construct offshore wind farms. They can include utilities, specialized offshore wind farm project developers, or technology developers. The equity of an offshore wind farm project may be transferred before the wind farm is completed. Once the wind farm is completed and put into operation, the developer may continue to hold a majority stake in the project and become the operator. In other cases, the developer may sell a majority (or all) of its stake in the offshore wind farm project to another company for operation. Since Taiwanese regulations do not impose too many restrictions on equity transfers for offshore wind farm projects, the company that applies for an EIA for an offshore wind farm project may not be the actual developer in the future. When an offshore wind developer or operator sells an offshore wind farm project to a third party, they must inform the fishing industry community. Any previous agreements made with the fishing industry community should continue and be transferred to the new owner. - 承包商受雇於開發及營運業者，負責調查、規劃、建設或維護離岸風場。承包商可能再尋求其他業者協助其工作。開發及營運業者有義務要求承包商認同並落實漁業聯絡指南，並向其下一級的分包商傳達相同的要求。
Developers and operators hire contractors to investigate, plan, construct, or maintain offshore wind farms. Contractors may seek assistance from other contractors for their work. Developers and operators are obligated to require contractors to acknowledge and implement the fishries liaison guidance and to communicate the same requirements to their subcontractors. - 區漁會是依據《漁會法》建立的法人並受主管機關之補助、指導與監督。儘管多數漁民為區漁會會員，受限於區漁會內部民主機制的不足，漁民的聲音通常無法透過區漁會表達。
Regional fishermen associations are legal persons established in accordance with the Fishermen Associations Act and are subsidized, guided, and supervised by the competent authority. Although most fishermen are members of regional fishermen associations, their voices are often not effectively heard due to the shortcomings of the internal democratic mechanisms of these associations. - 漁民協會是依據《人民團體法》，由漁民自發成立的自主性組織，通常較能反應當地漁民的聲音，是與當地漁民建立直接聯絡方式的有效管道。
Fishermen’s associations are autonomous organizations voluntarily established by fishermen in accordance with the Civil Associations Act. They are usually more able to reflect the voices of local fishermen and are an effective channel for establishing direct liaison with local fishermen. - 不從屬於組織的獨立漁民也是離岸風場計畫發展的漁業利害關係人，特別是區漁會無法代表漁民的情況是普遍存在的；因此，拜訪漁港對於確保建立盡可能廣泛的聯繫網絡是至關重要的。
Independent fishermen who are not affiliated with any organization are also fisheries stakeholders in the offshore wind farm development projects. Visiting fishing ports is essential to establish a broad network of contacts, especially when regional fishermen associations are mostly unable to represent fishermen.
1.5 指南的檢討 Review of the Guidance
本指南將由漁環中心與離岸風電部門合作定期檢討，並在適當時候更新。
This Guidance will be reviewed periodically by the TOES in cooperation with the offshore wind sector and updated as appropriate.
本指南為自願性質，預計藉由各方定期彙報使用指南過程中的經驗教訓和良好實務，以應對任何已知的挑戰或矛盾，並將其納入未來的指南修訂中。
This Guidance is voluntary and is intended to address any recognized challenges or inconsistencies by regularly reporting the experiences and good practices of all involved parties in utilizing the Guidance and integrating them into future revisions of the Guidance.
1.6 如何使用本指南 How to Use This Guidance
本指南旨在提供足夠的資訊，使離岸風電部門與漁業利害關係人就離岸風場的規劃、建設和營運中的潛在影響和兩個部門之間的互動進行建設性的討論。
The objective of this Guidance is to furnish comprehensive information that facilitates productive deliberations between the offshore wind sector and fisheries stakeholders regarding the potential ramifications of offshore wind farms throughout the phases of planning, construction, and operation, as well as the interplay between the two sectors.
本指南鼓勵離岸風電部門及早與漁業利害關係人協商，以制訂適用於自己離岸風場的漁業聯絡計畫並要求其下一級的承包商認同並落實。同時，隨著離岸風場計畫的不同階段，漁業聯絡計畫應適時修正。
The offshore wind sector is advised to engage with fisheries stakeholders at an early phase to create a Fishing Liaison Plan tailored to their specific offshore wind farm and mandate that their subcontractors acknowledge and adhere to it. Meanwhile, the Fishing Liaison Plan should be revised as needed at different phases of the offshore wind farm project.
本指南分成幾個部分，適用於離岸風場計畫的各階段。前兩節旨在提供兩個部門和離岸風場開發制度的概述，包括計畫許可的過程。第三至五節提供了從規劃階段到營運階段的聯絡指南，而第六到八節概述了與漁業有關的具體問題，為兩個部門實現相互理解和解決可能出現的任何潛在糾紛提供指南。
This Guidance is divided into several sections applicable to different phases of the offshore wind farm project. The first two sections aim to provide an overview of the two sectors and the offshore wind farm development system, including the project permitting process. SECTIONS 3 to 5 provide liaison guidance from the planning phase to the operational phase, while SECTIONS 6 to 8 outline specific issues related to the fishing industry. The goal is to guide the two sectors to achieve mutual understanding and resolve any potential disputes that may arise.
第一節對指南進行了介紹，並概述了哪些活動適用於使用本指南介紹了可能參與討論的各方組織和利害關係人。
SECTION 1 introduces the Guidance, outlines the activities to which the Guidance applies, and introduces the organizations and stakeholders that may be involved in the discussions.
第二節介紹了離岸風場計畫的法定許可程序以及關鍵的法律和法規。本節將有助於瞭解在許可過程中的哪些環節，應與漁業利害關係人進行離岸風場計畫相關的非正式和正式諮商。
SECTION 2 introduces the statutory consenting process for offshore wind farm projects and the key laws and regulations. This section is helpful in understanding at which phases in the permitting process should the informal and formal consultations related to offshore wind farm plans be conducted with fishery stakeholders.
第三節提供在離岸風場計畫的所有階段建立有效聯絡架構之指南，並透過指派關鍵的聯絡角色加以協助。
SECTION 3 offers guidance on establishing an effective liaison framework throughout the offshore wind farm project and providing assistance by appointing key liaison roles.
第四節提供在規劃和許可階段正式和資訊諮詢的良好實務建議，包括資料收集和開發業者需要從漁業社群獲得資訊的建議，以便充分瞭解潛在的影響和調適作為。
SECTION 4 offers good practice recommendations for formal and informal consultations during the planning and permitting phases. They include suggestions for data collection, and the information developers should gather from the fishing industry community to fully comprehend the potential impacts and mitigation measures.
第五節包含適用於離岸風場建設和營運階段，從事安裝和維護操作的工作人員與漁業聯絡的建議。
SECTION 5 includes recommendations for staff involved in installation and maintenance operations related to offshore wind farm construction and operation to communicate with the fishing industry.
第六節概述了開發及營運業者在離岸風場周圍申請安全區的程序，以及業者在建設和營運階段申請安全區時應考慮的因素，包括與漁業社群的討論。
SECTION 6 outlines the procedures for developers and operators to apply for safety zones around offshore wind farms, as well as the factors that operators should consider when applying for safety zones during the construction and operational phases (including discussions with the fishing community).
第七節提供開發及營運業者在規劃、建設或營運階段考慮使用漁船擔任戒護船或調查船時應注意的事項。
SECTION 7 provides guidance for developers and operators to consider when using fishing vessels as guard vessels or survey vessels during the planning, construction, or operation phases.
第八節概述了台灣西岸最普遍的刺網漁業與拖網漁業，以及如何避免漁具纏繞。
SECTION 8 outlines the most common gillnet and trawl fishries on the west coast of Taiwan and how to avoid gear entanglement.