壹、前言

中國大陸為保護海洋、促進資源持續利用，每年於

特定海域實施伏季休漁期制度；施行以來，曾在96年發

生澎湖籍6艘漁船遭大陸漁政船押返處罰案例，一度引

發本國漁民強烈非議，謹就海洋巡防總局因應作為，摘

述如次。

貳、休漁規定

一、98年大陸休漁規定

中國大陸調整調整休漁期休漁期規定因應作為規定因應作為

PRC government makes some changesresponding to “Marine Conservation Period”

文｜劉紹松 ◇Article｜Liu Shao-song ◇

Part I. Preface

The PRC (People's Republic of China) government has an-

nually imposed the "Marine Conservation Period" (which most

major fi shing activities are prohibited) in order to protect marine

resources. Since its implementation, there were 6 Penghu-regis-

tered fi shing boats penalized in 2007, by fi shing administration

ships of PRC government. This incident once sparked complaints

from Taiwanese fi shermen. Thus, Maritime Patrol Directorate

General has made the followings to respond the situation.

Part II. Regulations of Marine Conservation

I. PRC Marine Conversation Regulation in 2009

海 洋 論 壇海 洋 立 國 ． 台 灣 出 發

18 Vol.40―2009 海巡雙月刊

海海sssssssssss t r ot r ot r ot r ot r ot r ot r ot r ot r ot or n g n g n g n g n g n g n g n g n g n ggg g m a rm a rm a rm a rm a rm a rm a rm a rm a rrm i n ei n ei n ei n ei n ei n ei n ei n ei n en ei n en en n a n ann a n a n a n a n an an a n a t i ot i ot i ot i ot i ot i oot i ot i ot i ot i oi ot i n , n , n , n ,n , n , n ,n ,n , nn , Ta iTa iTa iTa iTa iTa iiTTa iTa iTa ia w a nw a nw aw a nw a nw aw a nw a nw a nw a nw a nw aw s e s es e s e s es es e s e s e s ees es t s t s t s t s t st s t s t s t sst ss S a iS a iS a iS a iS a iS a iS a iS a iS a iiS aS aa lllllllllB u i l d id iiiiii n g n gn g n g n g n gn gn g n g gn ggg a sa sa sa sa sa sa sa sa sa sa

國 ． 台 灣 出 發海 洋 立

MMaritime aritime FForumorum

休漁海域 Areas 休漁時間 Period 天 數 Days

北緯35度以北的渤海和黃海海域North of 35 degree Northern Latitude, around the maritime of the Bohai Sea and the Huanghai Sea (also known as the Yellow Sea)

6月1日12時至9月1日12時12 am, June 1st to 12 am, September 1st

92天92 days

北緯35度至26度30分的黃海和東海海域Between 35 and 26.30 degree Northern Latitude, around the maritime of the Yellow Sea and the East Sea

6月1日12時至9月16日12時12 am, June 1st to 12 am, September 16th

107天107 days

北緯26度30分以南至「閩粵海域交界線」的東海海域

The East Sea maritime that is south of 26.30 Northern Latitude, up to the marine boundary between Fujian and Guangdong

5月16日12時至8月1日12時12 am, May 16th to 12 am, August 1st

78天78 days

北緯12度以北至「閩粵海域交界線」的南海海域The South Sea maritime that is north of 12 degree Northern Latitude, up to the marine boundary between Fujian and Guangdong

5月16日12時至8月1日12時12 am, May 16th to 12 am, August 1st

78天78 days

（一） 自民國84年起，中國大陸農業部每年定期公告漁船全面禁止捕撈、作業及限制漁船進出港作業，違者予以強力取締。

（二）與台灣海域有交接者為北緯26度30分以南至「閩粵海域交界線」及北緯12度以北之南海海域。

a. Starting from 1995, Ministry of Agriculture of PRC has annually announced the prohibition of major fi shing activities based on regular schedule. The ones that violate this rule, including sailing fi shing boat on the sea, will be strictly penalized.

b. Maritime areas of Taiwan Strait that is affected by the " Marine Conservation " regulations are: (a) South of 26.30 degree Northern Latitude, up to the marine boundary between Fujian and Guangdong. (b) The South Sea maritime area that is north of 12 degree Northern Latitude.

2009 2009 • • Vol.Vol.4040 ⇥ 海 巡 雙 月 刊

2009―Vol.40 海巡雙月刊 19

二、台陸交接海域與大陸新制差異

（一）時間差異：

1、往年：6月1日12時起至8月1日12時止。

2、98年： 5月16日12時起至8月1日12時止，

提早2週。

（二）範圍差異：

1、 往年：與台灣海域交接處，劃定一特別休

漁管理區域「閩粵交界海域」（N22°30’

至N23°30’, E117°至E120°）。

2、 98年：取消原先「閩粵交界海域」，將名

稱更改為「閩粵海域交界線」（由閩粵

省界延伸至台灣鵝鸞鼻一線）（N23°09’,

E117°31’至N21°54’, E120°50’）。

（三）圖示差異：

II. Differences in the new regulation that affects the maritime

boundary between Taiwan and Mainland China:

(I) Difference in Timing

1. Previous years: 12 am, June 1st to 12 am, August 1st.

2. 2009: 12 am, May 16th to 12 am, August 1st, which is two weeks

earlier.

(II) Different in coverage

1. In previous years: a maritime zone located along the marine

boundary between Taiwan and Mainland China had been des-

ignated to be under special marine conservation management

known as "Maritime Boundary between Fujian and Guang-

dong" (22"30 to 23"30 Northern Latitude, 117 to 120 Eastern

Longitude)

2. In 2009, the previous designated "Maritime Boundary between Fu-

jian and Guangdong" has been renamed as "The Marine Bound-

ary Line between Fujian and Guangdong", which extends from

the provincial boundary between Fujian and Guangdong up to

Er-Rwang Bee, the southern end of Taiwan. (N23°09’,E117°31’to

N21°54’,E120°50’) (N = Northern Latitude, E = Eastern Longitude)

(III) Differences shown in the fi gures

N26°30’∼N23°30’ 海域 6/1 12時∼8/1 12時. 61天26.30 ~ 23.30 degree Northern Latitude, 12 am, June 1st, to 12 am, August 1st, lasting 61 days.

N12°以北海域6/1 12時∼8/1 12時. 61天north of 12 degree Northern Lati-tude, 12 am, June 1st, to 12 am, August 1st, lasting 61 days.

閩粵交界海域(E117°∼120°, N22°30’∼23°30’)6/1 12時∼8/1 12時. 61天The marine boundary between Fu-jian and Guangdong: E 117 ~ 120, N 22.30 ~ 23.3(117 ~ 120 degree Eastern Longitude and 22.30 ~ 23.30 degree Northern Latitude), 12 am, June 1st, to 12 am, August 1st, lasting 61 days.v

往年大陸休漁期規定Marine Conservation Periods by the PRC Government in the past years:

N26°30’∼N23°30’∼閩粵交界海域 5/16 12時至8/1 12時. 78天from 26.30 Northern Latitude to The marine boundary between Fu-jian and Guangdong, 12 am, May 16th to 12 am, August 1st, lasting 78 days

N12°以北海域5/16 12時至8/1 12時. 78天12 degree Northern Latitude, 12 am, May 16th to 12 am, August 1st, lasting 78 days.

98年大陸休漁期規定Marine Conservation Periods by the PRC Government in the past years:

海 洋 論 壇海 洋 立 國 ． 台 灣 出 發

20 Vol.40―2009 海巡雙月刊

海海sssssssssss t r ot r ot r ot r ot r ot r ot r ot r ot r ot or n g n g n g n g n g n g n g n g n g n ggg g m a rm a rm a rm a rm a rm a rm a rm a rm a rrm i n ei n ei n ei n ei n ei n ei n ei n ei n en ei n en en n a n ann a n a n a n a n an an a n a t i ot i ot i ot i ot i ot i oot i ot i ot i ot i oi ot i n , n , n , n ,n , n , n ,n ,n , nn , Ta iTa iTa iTa iTa iTa iiTTa iTa iTa ia w a nw a nw aw a nw a nw aw a nw a nw a nw a nw a nw aw s e s es e s e s es es e s e s e s es es e t s t s t s t s t st s t s t s t sst ss S a iS a iS a iS a iS a iS a iS a iS a iS a iiS aS aa lllllllllB u i l d id iiiiii n g n gn g n g n g n gn gn g n g gn ggg a sa sa sa sa sa sa sa sa sa sa

國 ． 台 灣 出 發海 洋 立

MMaritime aritime FForumorum

三、台灣海域納入規範

台灣已公告台、澎及金、馬之禁止、限制水域外界

線，惟大陸每年皆將台灣海域納入休漁期劃定範圍。

參、狀況分析

一、休漁期間違規仍在

（一） 休漁期期間：大陸漁船常越界至台灣海域集

結作業滯海未歸，除可規避陸方取締外，仍

可持續漁撈獲利，嚴重破壞海洋生態及漁業

資源。

（二） 休漁期前後：為彌補損失，大陸漁船頻頻進

入台灣海域進行捕撈，甚而更直接從事轉賣

漁獲予不肖台灣漁民，使台灣海域魚源未獲

生息。

二、競捕造成資源枯竭

台灣海域魚類種類繁多，汛期與漁場錯綜複雜，每

年3至5月為北方三島飛漁卵汛期，休漁期提前至5月16

日，北方三島海域將湧入大量大陸漁船競捕飛魚卵，可

能導致飛魚卵資源枯竭。

三、越界扣押本國漁船

大陸將台灣海域納入休漁制度適用區域，並調派

漁政船於海峽中線，如再發生越界扣船，將衝擊兩岸關

係，衍生不利影響。

III. Taiwan Maritime under the regulation

The R.O.C. government has already announced the ma-

rine zones around Taiwan, Penghu, Kinmen and Matzu, That are

prohibited for major fi shing activities. However, the PRC gov-

ernment has annually designated maritime of Taiwan under its

marine conservation regulation and administration.

Part III. Analysis of Current Situations

I. Violations still exist during the Marine Conservation

Period

(I) During the Marine Conservation Period, fi shing boats from

the Mainland China have still crossed the boundary to ma-

rine zone of Taiwan for fi shing operation, and frequently,

they prolong their stays. It is because they can not only avoid

being banned by the PRC government, but also gather fi sh-

ing resource. However, their actions seriously damage the

marine ecology and marine resources.

(II) Before/after the Marine Conservation Period: to cover the

loss arising from Marine Conservation Periods, Chinese

fi sh boats frequently entered maritime of Taiwan for fi sh-

ing, and even sell their stocks to unlawful Taiwanese fi sh-

ermen illegally. Thus, fi shing resource in Taiwan marine

zones has hardly recovered.

II. Fishing competition makes the resources scarce

Fishery resource is incredibly rich in Taiwan's maritime,

where many different types of fi shes are bred. March to May ev-

ery year has remained as the high season for fl ying fi shes from the

three islands in the north to hatch eggs. Since the Marine Conser-

vation Period has been made earlier, starting from May 16, there

will be a lot of Chinese fi shing boats fl ooding into the marine

zones of the three islands in the north to catch fl ying fi shes eggs.

It may possibly cause the fl ying fi sh eggs running short.

III. Taiwanese fi sh boats detained for crossing the bound-

ary

The PRC government has put the maritime of Taiwan un-

der its regulation and sent patrol boats to the middle of the Cross

Strait. If there are more Taiwanese fi shing boats detained by Chi-

nese patrolling ships, it will cause negative impact on the PRC

- R.O.C. relation.

Part IV.Enforcement Performance

Enforcement Performance for 2007 ~ 2008 Marine Conser-

vation Periods (including the before/after):

According to the chart above, there were 373 boats penal-

ized and 1,305 ones got driven away in the May ~ August marine

conservation period in 2007. In the same period of 2008, 586 boats

were penalized and 2,764 ones were expelled. It was obvious that

2009 2009 • • Vol.Vol.4040 ⇥ 海 巡 雙 月 刊

2009―Vol.40 海巡雙月刊 21

肆、執行成效

96及97年休漁期（含施行前後時間）取締成效：

96年2007

97年2008

5月May

6月June

7月July

8月August

共計Total

5月May

6月June

7月July

8月August

共計Total

行政處分（艘）

Number of the

Penalized (in boats)

108 86 109 70 373 185 172 113 116 586

驅離（艘）

Number of the

Expelled (in boats)

374 253 290 388 1,305 753 404 397 1,210 2,764

由上表列數據，96年5至8月共計帶案373艘、驅離1,305

艘；97年共計帶案586艘、驅離2,764艘，97年取締成效

較佳，除展示海洋巡防總局取締決心外，亦顯示大陸漁

船滯海作業未歸情形有增無減，殊值重視。

伍、策進作為

一、整合能量，綿密掃蕩

各海巡隊休漁期前後應加強整備、精進勤務作為，

依轄區狀況，適時執行「威力掃蕩」勤務，並統由海洋

巡防總局規劃辦理「聯合擴大威力掃蕩」勤務，取締以

「帶案行政處分」為主，除查扣全數漁具、漁獲外，並

切割起網機，針對累次違法者於必要時適時留置，以遏

阻不法。

二、海空偵蒐，有的放矢

（一） 每日由空偵機定時至相關海域執行空中巡

弋，藉由高機動特性，明確掌握大陸漁船聚

集海域，提供本總局巡防艦艇於第一時間趕

至現場取締。

（二） 勤前利用雷情系統查察大陸船舶集結或作業

動態，採取有效之勤務部署與行動，立即派

遣巡防艦艇前往查處。

三、加強宣導，防遭取締

the performance was highly improved in 2008. Besides

showing the determination of Maritime Patrol Director-

ate General, the number of Chinese fi sh boats prolonging

their staying not willing to return seems to be increasing

and it deserves more attention.

Part V. Improvement Methods

I. Integrated Manpower for more constant Wiping

up of unlawful fi shing boats

Each coast fl otilla must make full preparation before/

after the marine conservation period. All the fl otillas

have to carry on "Power Wipe Up" regularly, based on

each fl otilla's sector. On the other hand, the Maritime

Patrol Directorate General is planning the integrated

and expanded version of "Power Wipe Up", which will

be largely based on penalizing. The coast guards will

seize fi shing equipments, fi shery stocks and cut the net

hauler from the violators, and the ones who have violat-

ed the regulation for more than once will be detained.

II. Patrolling on the sea and in the air

(I) The air scouts will patrol in the air everyday. Due to its na-

ture of high mobility and observing range, the air scouts can

accurately detect if there is a gathering of Chinese fi sh boats

in certain marine zones, and will inform the Maritime Patrol

Directorate General right away for law enforcement.

(II) Radars will be used before going on patrolling to detect

the actions of Chinese fi sh boats. Information provided by

radars would be useful reference for operation. If the radar

detects anything abnormal, coast guard ships will be sent

immediately.

III. More Public Education for the Taiwanese Fishermen

All the fl otillas have to facilitate more public education for the

fi shermen associations and the fi shermen about the marine

conservation regulations of PRC. On the other hand, if any

Taiwanese fi sherman notices about any illegal fi shing activ-

ity or discovers any Chinese patrolling ship facilitating par-

ticular activities in Taiwan's maritime by Chinese fi sherman,

this fi sherman must inform the Maritime Patrol Directorate

General about it through either the Taiwan Fishermen's Radio

Station or the hot line 118.

IV. Patrolling Reinforcement

Since Chinese patrolling boats had penalized Taiwanese fi sh-

ing boats for violating the marine conservation regulations

of PRC, the Maritime Patrol Directorate General decides to

implement more concentrated patrolling around the marine

海 洋 論 壇海 洋 立 國 ． 台 灣 出 發

22 Vol.40―2009 海巡雙月刊

海海sssssssssss t r ot r ot r ot r ot r ot r ot r ot r ot r ot or n g n g n g n g n g n g n g n g n g n ggg g m a rm a rm a rm a rm a rm a rm a rm a rm a rrm i n ei n ei n ei n ei n ei n ei n ei n ei n en ei n en en n a n ann a n a n a n a n an an a n a t i ot i ot i ot i ot i ot i oot i ot i ot i ot i oi ot i n , n , n , n ,n , n , n ,n ,n , nn , Ta iTa iTa iTa iTa iTa iiTTa iTa iTa ia w a nw a nw aw a nw a nw aw a nw a nw a nw a nw a nw aw s e s es e s e s es es e s e s e s es es e t s t s t s t s t st s t s t s t sst ss S a iS a iS a iS a iS a iS a iS a iS a iS a iiS aS aa lllllllllB u i l d id iiiiii n g n gn g n g n g n gn gn g n g gn ggg a sa sa sa sa sa sa sa sa sa sa

國 ． 台 灣 出 發海 洋 立

MMaritime aritime FForumorum

請各海巡隊宣導轄內各區漁會、漁民，了解大陸

休漁期相關事宜，本國漁船如發現大陸漁船非法作業或

遇漁政船至我國海域時，應循漁業電台及118專線之管

道，立即通報海洋巡防總局各單位應處。

四、強化巡護，預防越界

考量大陸漁政船曾以本國漁船違反休漁規定押返大

陸懲處。因此，休漁期間應針對閩粵海域交界線、澎湖

淺灘及南海等特定海域，提升巡防艦船漁業巡護密度，

適時牽制大陸漁政船對我國漁船執法，以維護本國漁民

權益。

五、透過管道，查處不法

金、馬海域因地理因素，多為小型舢舨及木質小型

漁船從事越界捕撈，易於查處；北方三島及澎湖海域大

多係鐵殼船且噸位較大，查處不易，經常利用蛇行、造

浪等種種手段規避巡防艦艇查緝，宜針此種行徑逕行錄

影蒐證後，再藉由兩岸管道窗口，將資訊適時交予大陸

官方進行追處，以收嚇阻之效。

陸、結語

休漁期制度除易造成大陸漁船於實施前後蜂擁進

入台灣海域違法捕撈外，另大陸漁政船亦會因「主權維

護」及「執行績效」等因素，靠近本國管轄海域，影響

兩岸關係發展。在維護主權及人民利益之前提下，海洋

巡防總局對於違法大陸漁船應採取具體及強勢之執法作

為，以貫徹該總局執法決心。

（本文作者任職海洋巡防總局海務組）

boundary between Fujian and Guangdong, coastal shore of

Penghu and the South Sea, to prevent potential boundary-

crossing issues. On the other hand, protect the rights of Tai-

wanese fi shermen.

V. More channels for Investigations

Due to the geographical nature of Kinmen and Matzu areas,

many of the small rafts and small fi shing boats cross bound-

aries for gathering fi shing resource, which makes it easier to

investigate. However, around the marine areas of the three

major islands in the north and Penghu, there are more of the

large, steel ships and these ships usually sneak around, which

are hard to arrest. Regarding this situation, the proper way is

video recording of the illegal fi shing activities conducted by

these ships. Then, send the recorded data to the contact offi cer

who will send it to the PRC government authorities.

Part VI. Conclusions

There are many Chinese fi shing boats intruding Taiwan's

maritime before and after the marine conservation periods for

illegal fi shing activities. Meanwhile, a considerable number of

Chinese patrolling ships would approach Taiwan's maritime

for political or performance issues. These would make negative

impression for the Cross-Strait relations. Under the principle

for protecting the rights for Taiwanese fi shermen, the Maritime

Patrol Directorate General will take on a highly more strict ap-

proach to illegal Chinese fi shing boats.

(The author is currently with the Marine Affair Section of Mari-

time Patrol Directorate General)

2009 2009 • • Vol.Vol.4040 ⇥ 海 巡 雙 月 刊

2009―Vol.40 海巡雙月刊 23