漁民、魚塭與地景權力：台南七股養殖戶如何面對漁電開發衝擊

Abstract

2019年起，光電政策在七股開始推行；原來的魚塭地主皆投身其中，並將自身土地出租予光電業者開發案場。在視覺上，七股既有的魚塭地景從原本連續性的魚塭，到開始出現錯落零星的太陽能光電案場，最後變成連續性的光電元素與魚塭並陳。這樣的變化也為在地帶來一定程度的焦慮，甚至在光電開發的過程中，各利害關係人開始互相競逐資本而出現衝突。 本研究透過質性研究中的半結構式訪談、參與式觀察紀錄的方式，試圖討論不做漁電的養殖戶經驗，以及人與非人在地景中相互依賴並互相形構的關係。因此會先透過光電政策政策執行脈絡的梳理，了解光電在七股開發的過程，以及七股漁電體制如何成形，並看見地方對於漁電的想像。不過，儘管面臨光電熱潮，在地亦有部分的漁民仍將自身經營的土地維持在過去魚塭的狀態，並加入自身的多元使用，進一步使自身的土地往有別於光電開發的脈絡發展。而魚塭地景中的塭堤、養殖水體、水產也基於自身的物質特性，展現出對於光電開發的不適應與抵抗。上述這些地景中非人本身所擁有的物質性，加上漁民本身的能動性展現，共同形成一道軟性的邊界，使光電資本在向地景內部推進的節奏受到影響。 透過地景政治生態學的視角深入可以發現，內部相互形構的關係將漁民、魚塭、地景內蘊的權力彰顯出來，進而干預地景變遷的進程。在光電業者進入之後，土地的改造、使用、經營皆落入外來的光電業者的掌控，也導致在地對於這些光電案場的互動關係越來越薄弱，地景已經不再單純屬於地方，逐步轉變成為國家與市場控制的一部分。因此，研究認為這些在地的漁民更需要的是在透過認識與實踐、基礎設施、政策參與的賦權，並藉此使地景變遷過程中出現更多元的土地發展模式，達到公正轉型的目標。

Starting in 2019, photovoltaic (PV) policies began implementation in Qigu, where local fishpond landowners actively participated by leasing their lands to photovoltaic developers for project sites. Visually, the traditional fishpond landscape in Qigu transformed from continuous stretches of fishponds to scattered and irregular solar energy projects, eventually evolving into a coexistence of extensive photovoltaic elements and fishponds. This transformation has brought a certain degree of anxiety to the local community. During the development of photovoltaic projects, various stakeholders started competing for resources, leading to conflicts.

This study employs qualitative research methods, including semi-structured interviews and participatory observation, to explore the experiences of aquaculture farmers who do not participate in PV development. It examines the interdependent and co-constructed relationships between human and non-human actors within the landscape. The research begins by analyzing the policy context of photovoltaic implementation, tracing the development process of PV projects in Qigu, and understanding how the Qigu "fishery-electricity" system took shape, along with the local perceptions of this system.

Despite the surge in photovoltaic development, some local fish farmers have chosen to maintain their lands as traditional fishponds, incorporating diverse uses that deviate from the trajectory of PV development. Additionally, elements of the fishpond landscape—such as pond embankments, aquaculture waters, and aquatic organisms—exhibit resistance to and incompatibility with PV development due to their inherent material properties. The interplay between the materiality of non-human actors in the landscape and the agency of fish farmers forms a "soft boundary," which slows down the penetration of photovoltaic capital into the landscape.

From the perspective of political ecology of landscapes, this interdependent relationship highlights the power dynamics embedded within fish farmers, fishponds, and the landscape, which collectively intervene in the process of landscape transformation. Following the entry of photovoltaic developers, the modification, utilization, and management of land have increasingly fallen under the control of external PV developers. This shift has weakened the interaction between the local community and PV projects, with the landscape gradually becoming a component of national and market control rather than a purely local entity.

The study concludes that local fish farmers require empowerment through knowledge and practice, improved infrastructure, and active participation in policymaking. By fostering diverse land development models within the process of landscape transformation, the goal of a just transition can be achieved.