- 期刊
再訪臺灣離岸風電推動之政策法律架構─跨領域觀點
Critical Review of the Offshore Wind Power Development Policy and Legal Framework in Taiwan: Interdisciplinary Approach to Raise the Concern of the World First Offshore Wind Bubble?
摘要
自2016年以來，政府大力推動能源轉型非核家園之工作，以2025年達成20%再生能源發電佔比為重要工作，並以離岸風電及太陽光電為二大主力。在《風力發電4年推動方案》當中，2025年預計之累計設置容量目標離岸5.7GW。然此一目標可否達標，於2022年初引發立法院公聽會《「再生能源發展總體檢（2016－2025）：機遇、問題與挑戰」公聽會》檢討進度之聲浪。而也在該爭議後，經濟部重新檢討整體目標，臺灣2025年再生能源發電佔比從20%降至15.2%、裝置量目標不變，能源轉型政策原定2025年再生能源裝置容量目標光電20GW及離岸5.6GW，希望在2025年底完成建置之目標不變。然實際上，太陽光電與離岸風電之裝置容量與規劃目標量差異甚大。此引發本文探究之研究動機，就此一規劃與實際容量何以落差如此大，其原因為何？是否與整體政策及法制規劃架構有關？本文之目的，著重於跨領域之觀點，摘錄出長年來臺灣推動離岸風電關鍵之政策與法制議題，不同於傳統較關注之法律保留等公法原理原則分析架構。希冀透過此一政策與法制之交錯，提供讀者瞭解離岸風電法制問題及進度拖延，不同之視角與觀點。
並列摘要
In 2007, the Government of Taiwan began to launch a policy and legal framework for the development of offshore wind power. Since 2016, the government has employed the highest feed-in-tariff (FIT) in the world, and attracted more than 10 GW applications; it is scheduled to reach an installation capacity of 5.7 GW by 2025, making it the most ambitious scheme in the history of offshore wind power. However, most projects face serious project delay and cost overrun. This has been compounded by news of bankruptcy concerns, the inability to secure bank loans, and the release of 100% of shares from the pioneer offshore wind power developer in Taiwan. These developments have cast a shadow over the sustainability of the policy and legal framework for offshore wind power. This article provides an in-depth, critical review of the evolution of offshore wind power framework since 2007. Specifically, three key offshore wind power phases-Phase I: Demonstration, Phase II: Zones of Potentials, and Phase III: Zonal Development-are evaluated. The findings reveal that, first, for Phase II projects benefited by favourable incentives, owing to endless red tape and local content requirement, project delay and cost overrun are inevitable. This will also negatively affect developers' balance sheets. Second, for Phase III projects with NT$ 0 or 0.01 tendering price and for Phase II projects subject to the tendering scheme, securing loans will be challenging, particularly with rising tensions between Taiwan and Mainland China over the Taiwan Strait. The crux of the issue is the lack of a well-formulated policy and well-established legal framework. From a legalistic point of view, the current offshore wind power regime may be least bound by rule of law among all Taiwan industries since the abolishment of martial law and reforms under the Administrative Procedure Act promulgated on 3 February 1999. Very few legal experts, including the author, had raised concerns thereof at the time, urging in favour of special legislation on offshore wind power to deal with these issues and vociferously challenging the government for such Schwarzwald (Black Forest) in the Rechtsstaat (Rule of Law) country. Yet without a strong lobby of offshore wind power developers and government awareness (despite the legal background of the Minister of Economic Affairs), the situation seems unlikely to improve. It is a concern that this turmoil in the offshore wind power industry may lead to the first offshore wind bubble in the world.