制度及場域的不對稱邏輯：我國離岸風場環評與漁業補償關聯的發展與變遷

自從2011年日本發生福島核災劇變之後，我國逐漸加速推動再生能源政策，在推動離岸風電仿效英國開發經驗，以「先示範、次潛力、後區塊」為開發階段。然而，在推動離岸風電的過程中產生了各種的社會擾動，這些擾動除了生態保育還有原先海域的使用者，即漁會、漁民與開發商在海域發生衝突，因此漁業經濟與離岸風電，兩者產業之間的共存，應涉及我國如何設計利害關係人參與機制。首先，本文透過筆者架構「以行動者為取向的制度邏輯」以釐清並確認我國離岸風電漁業補償機制與問題之後，發現所謂的漁業補償若以更廣泛的涵義而言，應以「離岸風電金額支付項目」取代「漁業補償」之稱，以避免混淆；彰化區漁會採用「轉型及共存的金額支付模型」，雲林區漁會採用「一次補償用途的金額支付模型」，兩種模型背後反映出不同區域根據開發情況而產生不同特性，因此各區漁業補償問題不應一概而論，我國應針對不同模型提出不同的解決辦法。其後，進一步透過制度邏輯觀點為理論，發現我國離岸風場環評隨著不同開發階段呈現不同制度邏輯。示範階段時期環評制度邏輯涵蓋漁業補償及經濟合作項目，但是潛力開發階段卻逐漸甩開原先涵蓋之漁業補償及漁業經濟合作項目，將漁業經濟事務回歸目的事業主管機關。福海二期訴願案則呈現不同制度邏輯之下的衝突。福海二期原為福海一期的延伸，具備示範獎勵資格，在2018年因漁業經濟利害關係人溝通不佳，不予通過環評。但經過開發商提起行政訴願，隔年行政院訴願委員會以後來的潛力開發階段環評作為參考依據撤銷原環評結論，切斷了福海開發案與先前示範階段的場域邏輯連結，原先的示範意義已經消亡，福海成為新的「潛力階段風場」。先前的場域邏輯被後來的制度邏輯影響，在價值及實踐理念被取而代之，本文將該過程稱為「上－下級」關係的制度邏輯，並且進而從中點出制度邏輯觀點的盲點，意即福海訴願案採用之示範階段環評邏輯與後來的潛力階段環評邏輯呈現衝突，因此制度邏輯的轉變並不意味著場域邏輯同時發生轉變，呈現了「制度及場域的不對稱邏輯」，反映研究者若站在既有制度邏輯視角檢視場域邏輯，可能會因此忽略不同制度階段的邏輯事實與制度與場域的不對稱邏輯，反而成為了既有制度邏輯底下的代言人，研究者對此應有反思其必要。最後，本文檢視英國離岸風電籌設許可流程，發現英國藉由開發階段逐步完善利害關係人參與機制，對於接下來邁進第三區塊開發的我國應值得參考與警惕。

關鍵字

離岸風電；漁業補償；籌設許可；環境影響評估；制度邏輯；不對稱邏輯；新制度主義

並列摘要

Since the Fukushima Daiichi nuclear disaster in Japan in 2011, Taiwan has gradually accelerated the promotion of renewable energy policies so that has promoted offshore wind power to imitate the development experience of the UK, with "First Demonstration, Second Potential, and Third Block" as the development stage. However, in the process of developing offshore wind farm suffer from various social disturbances have been generated. In addition to ecological conservation that is the fishermen、fishermen associations and offshore wind power developers on the Marine. Therefore, the fishery economy and offshore wind power How to realize co-existence between the involves the design of the stakeholder’s participation institution. This dissertation first clarifies and confirms the problems of offshore wind power fishery compensation in Taiwan through the method of "actor-oriented institutional logic" structured” as a research approach , and finds that might as well as so-called fishery compensation is in a broader sense as call be" "offshore wind power payment project" replaces the term "fishery compensation" to avoid confusion; Changhua District Fishermen's Association adopts the "transformation and co-existence payment model", and Yunlin District Fishermen's Association adopts the "once-compensation payment model". The two models reflect that different regions have different characteristics according to the offshore wind farm development situation in Taiwan. Afterwards, as Institutional logics perspective as the theoretical framework, and finds offshore wind power presents different institutional logics with different development stages. During the demonstration stage, the EIA Institution logic still covers fishery compensation and economic cooperation projects, but in the Potential development stage gradually discarded the fishery compensation and fishery economic cooperation projects. The Fuhai Offshore Wind Farm Phase II administrative appeal case presented conflicts under two different Institutional logics, The Fuhai of Phase II was originally an extension of the Phase I. It was qualified for demonstration awards. In 2018, the EIA was rejected development in Fuhai of Phase II by communication problem with fishery economic stakeholders. However, in the following year, the developer filed an administrative appeal, and the EIA at the potential development stage of the Executive Yuan’s appeal committee was used as a reference basis to revoke the original EIA conclusion, cutting off the logical connection between the Fuhai development case and the field in the demonstration stage. The original demonstration significance has been with the demise, Fuhai has become a new "potential development stage offshore wind farm." This dissertation draws extensively on the research findings process as the institution logic of the "high-lower" relationship, and further points out the blind spots and problems of the institutional logic perspective. The logic of the demonstration stage EIA adopted in the Fuhai Offshore Wind Farm Phase II administrative appeal case conflicts with the logic of the later potential stage EIA. Therefore, the change of the institution logic does not mean that the field logic changes at the same time. It presents the "asymmetric logic" of the institution and the field, reflecting If researchers examine the logic of the field from the perspective of the existing institution logic, they may ignore the logical facts of different institution stages and the asymmetric logic between the institution and the field. Instead, they become the spokesperson of the existing institution logic. Researchers should to reflect on it himself. Finally, this dissertation examines the establishment process for offshore wind power in the UK, and finds that the UK has gradually improved the stakeholder participation through the development stage. It should be worthy of reference and vigilance for Taiwan to move into the Block stage.