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研究生: 洪一平
Hung, Yi-Ping
論文名稱: 地方利害關係人在促進海洋與海岸管理的關鍵角色-以彰化區漁會為例
The key role of local stakeholders in promoting marine and coastal management-Changhua Fishermen Association as an example
指導教授: 蕭士俊
Hsiao, Shih-Chun
共同指導: 張懿
Chang, Yi
學位類別: 博士
Doctor
系所名稱: 工學院 - 海洋科技與事務研究所
Institute of Ocean Technology and Marine Affairs
論文出版年: 2021
畢業學年度: 110
語文別: 中文
論文頁數: 109
中文關鍵詞: 漁會利害關係人離岸風電漁業保育區
外文關鍵詞: Fishermen's Association, Stakeholder, Offshore Wind Power, Fishery Conservation Area
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  • 臺灣的漁會屬於公益社團組織,漁會宗旨在增加漁民的知識和技能以改善漁民生活。漁會僱用專職工作人員(非漁民)在中央與地方政府的指導下實施漁業相關管理措施和相關法定規範。漁會因此在海洋事務上扮演一定角色,但又不可全然視為漁民身份。本研究以彰化區漁會為例,研析該漁會在漁業資源保育及離岸風場開發過程,漁會在臺灣海洋與海岸管理制度下的關鍵角色及功能。
    臺灣至2021年12月為止計畫46處不同法源規範的海洋保護區,其中30處為依據漁業法劃設之漁業資源保育區,其目的在於復育與保育特定經濟魚類資源。彰化縣自2006年起公告三個美食奧螻蛄蝦(Austinogebia edulis)繁殖保育區,由彰化區漁會成立漁民保育組織共同管理。本研究在彰化縣伸港美食奧螻蛄蝦繁殖保育區,以科學方法進行 4 年(2017-2020年)的美食奧螻蛄蝦資源量監測調查,探討保育區管理成效與利害關係人之關係。另一方面,臺灣發展離岸風電政策推動迅速,形成海洋空間多元利用的競爭,導致漁民和離岸風能開發之間的衝突日益加劇。由於臺灣離岸風電場域大部分位在彰化縣海域,本研究自2016年起進行彰化縣離岸風能電業與當地漁業之競爭之研究,以質性研究問卷調查、深度訪談以及舉直接觀察法,探討漁會在離岸風能政策推動過程中扮演的角色。
    美食奧螻蛄蝦繁殖保育區管理成效及彰化縣海域離岸風電與漁業競爭之調適二個案例分析結果顯示,區漁會可視為漁民以外的關鍵相關利害關係人,其參與有利於環境資源保育管理以及海洋多元開發衝突的緩解。本研究建議在漁業資源保育管理議題,應藉由漁會利害關係人建立社區共同管理平臺,漁會推動保護區資源長期監測、尋求政府經費支持,並依據海域變遷適當的保護區管理通盤檢討計畫,此一過程有助推展海洋保育成效。在緩解離岸風電與漁業競爭的調適議題上,漁會建立溝通平台,取得漁民、開發商以及政府單位的共識,有助於海洋風電政策之推動進程。綜整彰化區漁會成為關鍵利害關係人推展海洋與海岸管理的過程,本研究認為該漁會發揮3大功能: (1) 科學化管理與重視生態調查,(2) 致力於宣導各項海洋相關政策對漁民權益的影響,(3)有效的溝通協調角色。相較於其他漁會,彰化區漁會在海洋與海岸管理推動上成為關鍵功能性的利害關係人。

    In Taiwan, fishermen association is a type of nonprofit organization, which attempts to improve the livelihood of fishermen. Fishermen associations play the important rule in marine affairs that conduct fisheries management measures and regulations under the guidance of central/local government. This study investigated the case study of Changhua Fisheries Association (CFA) of its rule on fisheries resources conservation and offshore wind farm development. This study conducts a 4-year field survey (from 2017 to 2020) for monitoring the abundance of Austinogebia edulis within and out the fisheries resources conservation zones (FCZs) for evaluate its management efficiency relevant to the stakeholder’s participation. On the other hand, this study also conducted qualitative research for stakeholders related to the issue of offshore wind farm. The major results of two issues illuminated that fishermen association can be considered as key stakeholders behind the fishermen. Their participation is helpful to solve the competition between marine conservation and multiple use of marine space. This study suggested that in the issue of marine conservation, a co-management platform with all stakeholders which dominated by fisheries association can promote the long-term monitoring on protected resources with seeking financial support from governments. As a conclusion, it is suggested that CFA can be a functional key stakeholder because of their unique characteristic than other fisheries associations: (1) management with scientific-based measures and value biological investigation, (2) advocating obligations and interests relevant to marine policies, and (3) actively involved in communications.

    摘要 I Abstract III 謝詞 V 目 錄 VI 表目錄 XII 圖目錄 XIII 第一章 緒 論 1 1.1 研究背景與動機 1 1.2 研究目的 5 1.3 研究議題 6 議題一、共管平臺增進彰化縣美食奧螻蛄蝦保育區管理 6 議題二、彰化海域離岸風電產業與漁業競爭之調適模式 6 1.4 研究架構 7 第二章 文獻探討 9 2.1 海岸與海洋整合管理 9 2.2 臺灣海洋保護區議題 11 2.3 臺灣離岸風力發電議題 14 2.3.1臺灣離岸風力發電發展 14 2.3.2離岸風電政策初期缺少漁業利害關係人參與的問題 16 2.3.3持續海域生態監測及緩解漁業影響是離岸風電成功關鍵 16 2.3.4 申請離岸風場開發漁業權意見函 17 2.4 彰化海域空間背景與現況 18 2.4.1彰化海域漁業概況 18 2.4.2 彰化區漁會專用漁業權管理 20 2.4.3 海域人工魚礁區 21 2.4.4 中華白海豚重要棲息環境 22 2.4.5彰化風場航道 23 2.4.6 海纜上岸共同廊道 24 2.5 海洋與海岸漁業共同管理機制 25 2.5.1漁業共同管理 25 2.5.2 漁業共同管理成功案例 26 2.6漁會扮演關鍵利害關係人角色 28 2.6.1利害關係人的角色 28 2.6.2漁會具非營利組織公益的功能 29 2.6.3 彰化區漁會扮演利害關係人的功能 30 第三章 共管平臺增進彰化縣美食奧螻蛄蝦保育區管理 33 3.1前言 33 3.2 研究方法 33 3.2.1 季別彰化螻蛄蝦樣本採集 34 3.2.2 2017年至2020年的現場調查 35 3.2.3來自文獻的二次觀測數據 37 3. 3 調查結果 37 3.3.1 伸港地區之調查成果 37 3.3.2 美食奧螻蛄蝦密度和棲息地環境變化的歷史數據 39 3.4討論 42 3.4.1改變保育標的物的棲息地和空間分佈 42 3.4.2台灣MPA機構經費的不足 44 3.4.3改善海洋保護區管理架構 45 3.4.4小結 50 第四章 離岸風能電業與漁業競合 52 4.1 前言 52 4.2 研究目的 52 4.3 研究方法與材料 53 4.4 離岸風電對海域環境生態與漁業經濟的影響 53 4.4.1海域環境影響評估 53 4.4.2 離岸風電對漁業影響問題 54 4.4.3可參考的離岸風電與漁業調和之作法 55 4.5離岸風場對海域生態環境及漁業影響問卷分析 56 4.5.1漁民問卷 56 4.5.2 專家問卷 58 4.6 漁會舉辦利害關係人工作坊 61 4.6.1利害關係人工作坊漁民主要關注點 62 4.6.2漁業與離岸風電業利害關係人半結構式訪談 64 4.6.3漁民轉業議題 66 4.6.4漁會為關鍵利害關係人,有利於政策推展 67 4.6.5 已設置離岸風場三區漁會半結構式訪談 68 4.7 討論 72 4.7.1漁民對漁會功能的認知 72 4.7.2海洋空間規劃立法下的共存戰略 73 4.7.3 改進離岸風電政策的操作框架 76 第五章 結論與建議 79 5.1漁會參與海洋與海岸管理從競爭邁向合作 79 5.2協調與宣導,彰化區漁會扮演關鍵利害關係人角色 81 5.3漁會扮演關鍵利害關係人的元素 84 5.4建議 86 5.4.1漁會應納入國土計畫法海域空間規劃地方層級諮詢委員會 86 5.4.2建構離岸風電業與漁業共存合作模式 87 5.4.3成立彰化縣離岸風電漁業共榮基金會 89 參考文獻 93 附錄一、專家問卷 102 附錄二、各領域專家對不同構面的權重值與平均權重值(平均權重已剔除未達一致性) 108 附錄三、專家問卷資料的一致性指標 109 附錄四、各個專家問卷資料的一致性比率值 109

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