全球化脈絡下我國離岸風電國產化政策之形塑與變遷：政策倡導聯盟架構之分析

Abstract

我國離岸風電國產化政策是在能源轉型與產業轉型的軸線中推進，並高度建構在全球離岸風電市場的脈絡中。從2018年潛力場址遴選階段的政策形成、到區塊開發第一期及第二期的兩次政策變遷，共經歷三次的政策推出。本研究透過政策倡導聯盟架構分析這之中的政策的形塑與變遷過程，並以質性研究方法，透過文獻分析和深度訪談，瞭解解政策參與者的觀點和行動，並分析政策次級系統中的動態互動。 本研究驗證了政策倡導聯盟架構所提出促成政策變遷的主要因素，包括外部環境變動、政策次級系統中的政策導向學習與僵局等情況。在不同階段的制度推出過程中，也能看到政策次級系統內倡導聯盟與政策掮客在次級信念和部分政策核心信念的轉變。 本研究發現，台灣因為擁有世界級的風場資源和處於良好地理位置，並有明確的風電設置目標及製造業基礎，為政策發展優勢，加上外部環境帶來的機會，使國際業者持續加入台灣風場的開發，並帶入國際技術與資金等資源，但歷經一系列國際政經事件衝擊後，政策參與者的資源受影響，優勢雖然存在但漸難以彰顯。相對地，由於政策起初，國內供應鏈尚未有離岸風場實績，因此需經歷學習曲線的過程，為政策發展相對劣勢，隨著時間的推移，在技術、人才與基礎建設方面已逐漸提升，但距離產業轉型達到國際競爭力階段還需要成長時間。面對外部環境持續帶來的壓力及搭配能源轉型時程，政策未來須持續調整，包括提供政策參與者資源或鬆綁相關限制，以達到政策次級系統的動態平衡，使政策能持續發展。

Taiwan's offshore wind power localization policy is advancing within the framework of energy transition and industry transition, and is under the global offshore wind market context. From the policy formation during the Potential Site Selection phase in 2018, to the first and second phase of Block Development, the policy has undergone three iterations. This study analyzes the forming and change of these policies through the Advocacy Coalition Framework (ACF), using qualitative research methods, including document analysis and in-depth interviews, to understand the perspectives and actions of policy participants and the dynamic interactions within the policy subsystem. The study confirms the ACF's proposed factors that facilitate policy change, including external environmental changes, policy-oriented learning, and stalemates within the policy subsystem. Throughout the various stages of policy implementation, shifts in secondary beliefs and some core beliefs among advocacy coalitions and policy brokers were observed. The study finds that Taiwan's world-class wind resources, strategic geographic location, clear wind power installation targets, and strong manufacturing industry base provide advantages for policy development. These factors, combined with opportunities from the external environment, have attracted international developers to Taiwan's wind farms, bringing in international technology and capital resource. However, after a series of international political and economic events happen, it impacted the resources of policy participants, making it harder to highlight these advantages. Conversely, the initial lack of domestic offshore wind farm experience meant that the local offshore wind industry has to go through a learning curve, presenting a relative disadvantage in policy development. Over time, advancement in technology, talents, and infrastructure have been created, but achieving international competitiveness in the industry still requires learning time to develop. Facing ongoing external pressures and the timeline of energy transition, future policies must continue to adjust in response to the challenges, including providing resources to policy participants or loosening related restrictions, to maintain a dynamic balance within the policy subsystem and ensure sustained policy development.