尺度政治下的運作地景：屏東林邊的太陽光電

Operational Landscapes of Politics of Scale: Solar Photovoltaic Projects in Linbian, Pingtung

鍾政霖(Cheng-Lin Chung)

指導教授 ： 陳亮全

共同指導教授 ： 黃舒楣(Shu-Mei Huang)

國立臺灣大學/工學院/建築與城鄉研究所/碩士(2020年)

https://doi.org/10.6342/NTU202002688

摘要

自2009年《再生能源發展條例》訂定以來，臺灣的再生能源開始蓬勃發展，成為重要的發展政策之一，相關能源產業也隨之興起。其中，地面型太陽光電的濫觴可追溯至屏東縣政府於八八風災之後，在林邊、佳冬地區的「養水種電計畫」；隨技術發展，近幾年更如雨後春筍在許多的農田、綠地中太陽能光電板漸漸架起，形成獨特的「科技農田」。推動初期時，就已面臨如躉購費率、農地使用規範等問題，近年的發展更是飽受環保團體、農民與居民等的反彈，太陽光電的進駐似乎不論是在什麼時空背景之下，都時常引起不同衝突與紛爭。
對此，本研究以在屏東林邊地區於2010年推動之「養水種電計畫」，與2018年推動之「四鄉鎮800 MW光電計畫」，藉由政策計畫文獻分析、半結構式訪談、地景分析等方式，探討太陽光電相關計畫在不同的時空背景下，所形成的尺度關係網絡，並試圖以太陽能發電系統、電力系統之輸配電系統等電相關技術角度，探討科技物在計畫再尺度化過程中所扮演之角色與影響。
兩計畫是在不同的決策脈絡下所形成：一為災害治理下的養水種電計畫，一為地方能源治理下的四鄉鎮800 MW計畫。因此，計畫中的核心作用者與操作尺度也有所不同：前者以屏東縣政府為核心，操作尺度處於縣市與社區層級之間，後者則以系統業者為主要執行者，操作尺度則位於縣市與國家層級間，導致了兩個截然不同的尺度關係網絡。再者，兩計畫中太陽能光電板設置規劃，在併聯電網之電壓等級的差異下，對太陽能電廠的地景造成極大的影響：養水種電計畫以配電系統作為併聯線路，而四鄉鎮800 MW計畫則為輸供電系統，在技術操作下前者形成低容量、小面積且分散的「循線找地」的地景型態，後者則以高容量、大面積且集中的方式開發、形成「以地建線」之地景型態。
林邊地區的太陽光電計畫在不同的核心處理議題下，形成了不同的「治理形態」，與電網併聯技術限制與需求上引發了不同的「技術操作」，兩者在林邊的土地上共作出截然不同的運作地景。其社會空間過程反映出科技物太陽光電作為治理手段之一在不同的使用脈絡下，會藉著技術操作影響既有的社會空間關係網絡、形塑出不同的尺度關係，甚至引發計畫的再尺度化。因此，本研究認為太陽能電廠的電廠地景型態可視為，社會空間關係變動過程中尺度的可視化表現之一。

關鍵字

再生能源 ； 太陽光電 ； 運作地景 ； 再尺度化 ； 屏東 ； 林邊

並列摘要

Development of renewable energies, which is one of the most significant policies promoted by the incumbent Tsai administration, has increased rapidly since “Renewable Energy Development Bill” completed in 2009. Those related industries have grown fast lately. “Photovoltaic Farming to Reserve Water (PFRW, 養水種電計畫)” in 2010 can be seen as the first project of ground–mounted photovoltaic systems in Taiwan, which is operated in Linbian and Jiadong, Pingtung. Along with the rapid development of techniques for solar photovoltaic systems, numerous solar power generation systems have sprung up in farms and greens, as unique scenes of “technology farm,” in this decade. At the beginning, many issues remained to be solved, such as power-purchasing tariff, regulation for using farm land, and there are even more conflicts with environmental organizations, farmers and residents. They continued to be controversial all the time as solar power generation systems develop.
This study is attempted at focusing on “Photovoltaic Farming to Reserve Water” in 2010, and “800 MW of Photovoltaic Systems in Four Township (800PSFT, 四鄉鎮800 MW光電計畫)” in 2018, both of which are solar photovoltaic projects in Linbian, Pingtung. It recognized the multi-scale relation in the different projects of ground–mounted photovoltaic systems under distinct agendas, and effects and functions of technologies in the process of rescaling, by the analysis of policies, semi-structured interviews and analysis of landscapes.
Those projects are formed in two different contexts of policy decision, one of which is disaster governance, and the other is energy governance. The key actors in two projects differ significantly. In PFRW, the dominant actor is Pingtung County Government, and the scale of project lies between county and community. On the other hand, the dominant actor in 800PSFT is the planner of photovoltaic system in Linbian, and the scale of project lies between county and nation. Furthermore, the plannings of photovoltaic system are varied by influence of different voltage of grid-connected system. The photovoltaic systems, in PFRW, are low-power-generation, small-area, and scattering in numbers of places dependent of electricity distribution systems, while in 800PSFT is high-power-generation, large-area, and concentrated around the booster station.
Though the two solar photovoltaic projects are both located in Linbian, Pingtung, they are resulted from different “formation of governance” due to the different agenda, and distinct “operation of technology” conditioned by different power generation and grid-connected system. Consequently, both cases exemplified the co-production of the landscapes of solar power generation systems, it shows that the solar photovoltaic system, as a particular technique, has shaped socio-spatial relation networks, brought about new spatial relations, and even triggered the rescaling of processes of operation under various contexts of use. It concluded that landscapes of solar power generation systems can be considered as one of visualization of scale-relations in processes of sociospatial power struggles.

並列關鍵字

renewable energy ； solar photovoltaic ； operational landscape ； rescaling ； Pingtung ； Linbian

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