A Dive Trip to Dongsha Atoll — No Longer Just a Dream? Taiwan's Tourism Machinery Appears to Be Quietly Stirring

The Editor says: I've heard from many seasoned divers over the years that the underwater ecosystem of Dongsha Atoll National Park is absolutely stunning — lemon shark juveniles gather along seagrass beds in water barely knee-deep, and the coral reef ecosystem beneath the surface is remarkably intact. In August 2018, the Ocean Affairs Council tabled the proposal "Should Dongsha Island Be Opened to Tourism?" at an Open Government Contact Person working meeting, inviting relevant stakeholders to discuss whether Dongsha could, beyond its national defence role, be transformed into a catalyst for the marine recreation industry. Many thanks to Lin Yu-Tsang of PDIS for providing a thorough record of the key meeting points. We hope this can carry our collective aspirations forward, step by step! Original source

The following article is reprinted in full from the original piece written by Lin Yu-Tsang of PDIS. Original source

On 6 August 2018, the Ocean Affairs Council tabled the proposal "Should Dongsha Island Be Opened to Tourism?" at an Open Government Contact Person working meeting, with the goal of mapping out and understanding the current situation on Dongsha Island through a collaborative conference, and assessing the feasibility of opening the island to ecotourism. Following a monthly vote, the proposal was selected as the subject of a collaborative conference. On 26 October, PDIS convened a collaborative conference with the Ocean Affairs Council and the Ministry of the Interior at the Ocean Affairs Council's Kaohsiung office to discuss issues related to opening Dongsha Island to tourism, and to further explore possible ecotourism proposals.

Conservation Efforts Bear Fruit — the Marine National Park Administration Has Already Evaluated Ecotourism Options for Dongsha Island

When the Executive Yuan approved the Dongsha Atoll National Park Plan in 2004, the directive stipulated that priority should be given to resource restoration, monitoring, and ecological research, and that ecotourism and environmental education should only be pursued once conservation outcomes had reached a certain level. The Dongsha Atoll National Park Plan itself designated the first five years after establishment as a conservation and restoration period, during which the park would not be open to the general public, in order to carry out resource surveys, environmental restoration, and planning of relevant facilities. After those five years, the management outcomes would be evaluated to determine whether small-scale ecotourism and environmental education activities could be introduced.

Survey and monitoring results from 2017 showed that the average coral coverage of Dongsha's outer atoll reef had reached over 50%, with peak coverage as high as 80% — a clear sign that restoration efforts had achieved meaningful results. As a result, the Marine National Park Administration began evaluating ecotourism development proposals, commissioning Professor Ou Sheng-Rong in 2009 and again in 2017 to lead the Dongsha Atoll National Park Ecotourism Development Plan. Future plans include implementing overall visitor quotas to develop a boutique, small-scale ecotourism experience.

The motivations for opening ecotourism include the park's successful restoration, which warrants developing ecotourism so that more people can appreciate the importance of local ecological conservation. In addition, the influx of visitors and ecotourism operators would help deter illegal fishing vessels from encroaching on the area. Furthermore, attracting both domestic and international tourists through ecotourism could strengthen Taiwan's influence in the South China Sea.

Through issue mapping, we found that many tasks — including infrastructure upgrades and the development of ecotourism programmes — are already part of the Marine National Park Administration's plans. The question then became: how should this collaborative conference handle these issues? Through internal discussion, we revisited the double diamond framework and re-framed the HMW (How Might We) Challenge: "How might we allow domestic and international visitors to learn about the importance of ecological conservation on Dongsha, while achieving the goals of protecting the local ecosystem and increasing Taiwan's influence in the South China Sea?" We then treated "opening to ecotourism" as the proposed solution, directing the conference to focus on the question of "whether the currently planned ecotourism programme can satisfy the goals of ecological conservation and increasing Taiwan's South China Sea influence."

Developing Ecotourism Requires Infrastructure Improvements and Comprehensive Regulatory Frameworks

At the outset of the meeting, the Ocean Affairs Council noted that its minister, Huang Huang-Hsiung, had stated in an interview with the Central News Agency that the ocean — like sunshine, air, and water — is a public resource. Everyone should set aside self-interest and allow public resources to serve the greatest possible good. He expressed hope that plans could be made to allow family members of military and civilian personnel stationed on the East and South China Sea islands to visit, and to open the area to short-term leisure tourism.

The Marine National Park Administration under the Ministry of the Interior's Construction and Planning Agency noted that Dongsha Island is actually closer to Hong Kong and Shantou than it is to Taiwan. In the past, steel-hulled vessels from mainland China frequently crossed into these waters to fish illegally, and yachts from Hong Kong would also come here for diving. Dongsha Island hosts many distinctive species, including coral reef ecosystems, the flapnose ray (Rhinoptera javanica), the lemon shark (Negaprion acutidens), and the hostile mud crab (Scylla serrata).

Currently, Dongsha Island is served by one civilian flight per week, which can carry 70 passengers, while military flights operate only once a month — primarily for the transport of military personnel and island staff. Food, daily necessities, and equipment parts for those stationed on the island must all be delivered by resupply ships. Although resupply ships can sail to the outer edge of the atoll, the shallow waters inside the atoll require an additional platform vessel to ferry cargo to the Dongsha Island pier. At present, the maximum resupply capacity per voyage is 17 containers, including refrigerated units. In order to strengthen local resupply capabilities, the Coast Guard Administration is looking to dredge a navigational channel, though this may affect local species and further assessment is ongoing.

On the premise of functional compatibility and adherence to the ecological carrying capacity, the Marine National Park Administration hopes to develop Dongsha into a sustainable ecological island that also offers high-quality recreational experiences. The overall development strategy is guided by the principle of low-impact development to improve existing island facilities and enhance living conditions on the island. In the short term, a professional organisation would be contracted to manage ecotourism operations, and participants could engage in activities such as coral planting, invasive species removal, beach cleanups, environmental education experiences, and stargazing. The aim is to use an ecological experience and working-holiday model to expand the number of visitors and participants, laying the groundwork for medium- and long-term development. The short-term phase is designated as a trial period of approximately three years. In the medium term, activities would extend from land to sea, offering a more diverse range of recreational experiences including scuba diving, underwater photography, and boat dives. In the long term, the goal is to elevate Dongsha Island into a destination defined by premium recreational experiences and service quality, innovative island landscapes, and sustainable development — with activities potentially including international sailing, liveaboard diving, glass-bottomed boat tours, semi-submersibles, and beach activities, as well as offshore floating platforms, underwater cycling, and underwater walking.

That said, developing ecotourism may present certain challenges. A visitor carrying capacity system would need to be established, along with performance indicators for ecotourism and the designation of permanent monitoring zones. At the same time, clear boundaries would need to be drawn between ecologically protected areas and zones available for recreational use. Once these regulations are in place, a professional operator would need to be contracted to implement them, and island facilities would need to continue to be improved.

The Taiwan Yacht Industry Association shared their perspective on yacht-based ecotourism, suggesting that the self-sufficient nature of yachts makes them ideal for operating ecotourism at Dongsha through a liveaboard model combined with diving activities.

During the issue clarification segment, ecologists expressed the hope that government documents related to the conference could be made publicly available. After discussion, participants suggested that the Marine National Park Administration could label them as "draft" documents before proceeding with public disclosure.

Issue Clarification — Focusing on Supporting Measures for Dongsha Island Ecotourism

One academic participant shared that there are numerous patch reefs in the waters around Dongsha Island, and that without relevant LiDAR charts of the area, vessels could easily run aground. Unfortunately, this LiDAR data is classified as an official secret. The participant expressed hope that the data could be used effectively to improve navigational safety in the area. He also noted that due to the influence of the northeast monsoon, the area may only be suitable for tourism from May to September.

Another academic shared the example of Boracay, which was closed for six months after its recreational carrying capacity was severely exceeded, and was subsequently reopened with zoning restrictions on many activities. He recommended that Dongsha Island undergo detailed assessments by zone and season in response to climate change, which would contribute to more sustainable long-term management.

On the topic of liveaboard diving, one participant suggested that five to ten liveaboard dive vessels could be permitted to operate simultaneously, departing from Kaohsiung Port to pick up diving guests and sail to Dongsha for recreational activities. The Kaohsiung City Government expressed support for the Yacht Industry Association's proposal, suggesting a trial voyage to Dongsha for liveaboard diving. The Kaohsiung City Government noted that Dongsha Island is an excellent dive site, and that Taiwan's yacht manufacturing quality is high — using yachts for liveaboard diving would also benefit Taiwan's yacht industry. The Kaohsiung City Government proposed that a dedicated pilot project be established for liveaboard diving at Dongsha Island.

The Kaohsiung City Government also shared that Kaohsiung currently has two privately operated yacht marinas that are already running very smoothly, with facilities that are more than adequate. The hope was expressed that a liveaboard diving trial voyage could be conducted as soon as possible.

Some participants raised concerns about opening to ecotourism. One cautioned that if the planners and managers lacked knowledge of proper ecotourism practices, the risks could be significant — citing the example of Sipadan Island in Malaysia, which was effectively abandoned as a settlement due to improper wastewater treatment. Others shared that in many internationally open diving destinations, visitor quotas are accompanied by entry fees. Some national parks, for instance, collect ecological taxes earmarked exclusively for local conservation, with vessel entry limits based on tonnage. Ecologists at the conference pointed out that some destinations enlist citizen scientists to conduct regular coral reef health checks, and will close an area if the reef is found to be in poor condition. One participant suggested drawing on the "Leave No Trace" concept, using professional guides to lead ecological tours and interpretive programmes, and encouraging visitors to take their own rubbish back with them.

The condition of the Dongsha Island lagoon was also a key topic of discussion. An academic at the conference shared that every April, female lemon sharks of around 3 m in length return to the lagoon to give birth, and large numbers of Stingray also appear — making the lagoon an important feeding habitat for juvenile sharks and rays. He noted that the inner lagoon has poor water circulation, and that if vessels — or even personal watercraft — were to remain in the area, lubricating oil or heavy fuel residue could cause serious harm. He urged careful assessment of any dredging activities to avoid causing severe environmental impacts.

The Marine National Park Administration noted that lemon sharks have been spotted not only around Dongsha Island itself, but increasingly along the outer atoll reef as well. However, the Administration faces a difficult dilemma: steel-hulled vessels from China and Vietnam, weighing 200 to 300 tonnes, have been using bottom trawling nets in the area, causing catastrophic damage to coral reefs. The current Coast Guard patrol vessels are unable to deal with these iron-hulled ships — boarding them is extremely dangerous. As a result, some degree of compromise may be necessary: dredging the Dongsha navigational channel to allow larger vessels to enter and anchor, thereby deterring Chinese and Vietnamese fishing vessels from crossing into the area and protecting the local ecosystem. The Administration noted that the Coast Guard has done everything possible to minimise ecological impact, and hopes to gain the maximum enforcement capability in exchange for the smallest possible environmental footprint.

Regarding hardware infrastructure upgrades, the Marine National Park Administration noted that only a visitor centre, a wastewater treatment facility, and a waste management facility are currently planned — all of which are deemed essential for both ecotourism development and the preservation of the marine ecosystem around Dongsha Island.

Tourism operators suggested that permanent mooring buoys be installed at dive-friendly locations with calm, stable conditions, to prevent vessels from dropping anchor when stopping for dive activities, which can damage coral reefs. They also mentioned that if they were to encounter Chinese fishing vessels engaged in illegal fishing during their visits, they would report this to the Coast Guard and assist with law enforcement efforts, helping to ease the burden on the agency. However, they noted that the current Ministry of National Defense requirement of a 45-day review period for all individuals travelling to Dongsha is likely too long and could be a significant deterrent, and that adjustments may be needed. The Ministry of National Defense responded that the matter would need to be escalated to senior officials to determine whether changes could be made in the future.

Breakout Groups Recommend Strengthening Marine Conservation Capacity

Following the morning's discussions, the afternoon session was divided into two breakout groups to discuss the question: "Can the currently planned ecotourism programme satisfy the goals of ecological conservation?" In order to train civil servants in facilitation skills, the breakout groups were led by National Development Council staff serving as table facilitators, with PDIS members providing facilitation support.

After discussion, Group 1 concluded that if the Marine National Park Administration developed more comprehensive management regulations as part of future unified contracting, ecotourism could be made to meet the needs of ecological conservation. They also suggested consulting with indigenous communities to learn from their knowledge of living in harmony with nature. While participants strongly recommended planning ecotourism around liveaboard diving, the Marine National Park Administration expressed concerns about the difficulty of managing such operations.

Group 2 raised the issue of diving insurance, noting that there is currently no insurance product in Taiwan specifically designed for diving activities. While some general insurance policies can be applied to diving-related incidents, they are structured around medical evacuation rather than dive-specific coverage.

On the issue of illegal fishing, one member of Group 2 argued that since the year 2000, with the support of the Coast Guard and the Marine National Park Administration, the incidence of illegal intrusions by foreign fishing vessels has decreased significantly — and therefore the issue of illegal fishing should perhaps be removed from the discussion. Group 2 also raised concerns about waste management and conservation on the island. Cleaning up marine debris requires vessels, and the associated costs far exceed those of land-based waste removal. However, budget allocations may be distributed equally across categories, resulting in insufficient funding for marine conservation. Group 2 also specifically discussed the need to strengthen 4G signal coverage on the island, recommending the use of satellite mobile phones as a solution.

In its closing remarks, the Ocean Affairs Council noted that since the establishment of the Coast Guard Administration in 2000, a maritime enforcement presence has been maintained at Dongsha, and the incidence of illegal fishing has improved significantly. Under sustained law enforcement, a deterrent effect has been achieved. The Coast Guard Administration suggested that liveaboard operators could assist by photographing and documenting evidence to support enforcement activities. However, funding shortfalls remain an issue. The Coast Guard Administration also pointed out that plastic waste in the ocean can only break down into smaller fragments — it cannot decompose. Once ingested by shellfish or fish, it enters the food chain and may ultimately be consumed by apex predators or humans, with significant consequences. "Fish don't have voting rights, but we must still take them seriously," said one representative. Looking ahead, the Ocean Affairs Council will work in accordance with the Ocean Basic Act to establish a Marine Sustainable Management Fund, building a dedicated financial mechanism to maintain and protect the marine ecosystem.

After a full day of discussion, Minister without Portfolio Audrey Tang would report the outcomes of the day's discussion at the following week's political affairs meeting, to serve as a reference for the Premier and relevant ministers in future policy planning. The issue handbook, mind map, and verbatim transcript from the conference will also be made publicly available online for public reference.

Breakout Facilitators Performed Well — Broader Stakeholder Representation Recommended

Some participants noted that several key representatives from certain government agencies — such as the relevant Ministry of National Defense staff — were absent, which resulted in certain issues being left unresolved. Others pointed out that some participants' thinking remained anchored in land-based planning and that they lacked an understanding of the marine recreation mindset; it was suggested that these participants be given the opportunity to experience liveaboard diving firsthand, so that discussions could be grounded in concrete, real-world scenarios.

Some participants felt that the National Development Council staff who served as breakout facilitators performed admirably — when discussions began to drift, the facilitators were able to steer them back on track and clarify the points being made, while also incorporating relevant planning considerations to help keep discussions focused. The mind map format was also seen as helpful in encouraging holistic thinking, though the lack of action items made it difficult to reach conclusions in the short timeframe.

Civil servant participants noted that many of the discussion dynamics had been anticipated in advance, and that the concerns raised by the various stakeholders all warranted inclusion in the deliberations. Since the conference was still at the feasibility assessment stage, the outcomes could be incorporated into subsequent adjustments, and stakeholders could mentally prepare for what lies ahead. However, one civil servant cautioned that while yacht operators themselves tend to be very mindful of safety, not all operators who enter the market will necessarily be so — some have low barriers to entry and may not be responsible for safety standards. This is a nuance that may need to be more carefully addressed in future discussions.

One participant also noted that because only liveaboard operators had been invited to this session, the discussion naturally gravitated toward a liveaboard diving ecotourism model. It was suggested that a broader range of stakeholders — such as ecology-focused operators — be considered for inclusion in future discussions to bring in a more diverse range of perspectives.

(This article is reprinted from a piece written by Lin Yu-Tsang of PDIS, with BlueTrend's permission to write the editorial introduction and revise the title. The original title was "Can Dongsha Island Be Opened to Ecotourism? Participants Recommend Starting with Liveaboard Diving". Cover image source: Pxhere, CC licensed.)