Longdong Fishermen Rally to Protest Clashes with Divers, Exposing the Rashomon of Taiwan's Ocean Governance

When Land Rules No Longer Apply: The Clash Between Longdong Fishermen and Divers

Longdong Bay on Taiwan's Northeast Coast is a mecca for diving enthusiasts. Yet this seemingly tranquil cove made headlines this past September when a conflict between divers and fishermen erupted — reigniting a heated public debate over "rights to ocean use."

The spark that set things off came in late August and early September, when divers began circulating footage of dead fish in parts of Longdong, and reports emerged of divers hearing what sounded like underwater explosions — suspected illegal blast fishing. These accounts spread rapidly on social media, with divers publicly accusing local fishermen of illegal practices. Feeling unfairly stigmatized, local fishermen mobilized more than twenty fishing vessels to circle the harbor in protest, hanging white banners bearing messages such as "Enter the shipping lane while diving and you're on your own."

Tensions between fishermen and divers have been building for years. Fishermen argue that divers routinely stray into shipping lanes without authorization, creating dangerous situations for working vessels. Divers, for their part, counter that there are no visible markings on the water's surface, making it nearly impossible to determine where a shipping lane begins once you're in the sea. Both sides stand their ground — yet both point to the same fundamental question: when land traffic has clear laws and signage, how do we define the right to use space on the open ocean?

Longdong as a Microcosm of Taiwan's Ocean Conflicts

The Longdong dispute is far from an isolated incident — it is a microcosm of the broader controversy over ocean use rights in Taiwan. As marine tourism and water sports have surged in recent years, clashes between fishermen and divers over shipping lanes and fishing grounds have grown increasingly frequent. Similar conflicts have occurred at other popular dive destinations across Taiwan, including Xiaoliuqiu and Orchid Island.

During the 2022 fishing season at Xiaoliuqiu, for example, divers were repeatedly spotted in fishing vessel lanes and catch areas, raising fears of collisions. Fishermen posted public videos urging divers to clear the lanes — yet incidents were still unavoidable. A dive instructor was injured by a fishing hook from a passing vessel, highlighting a serious safety dimension to the conflict. In response, the Xiaoliuqiu District Fishermen's Association repeatedly called on the government to designate dedicated freediving safety zones at five locations, including Shanfu and Meirendong, to protect the interests of both parties.

A similar situation has unfolded on Orchid Island, where local fishermen report that divers sometimes venture into vessel lanes, sparking disputes over safety and rights. Fishermen there have demanded that the government designate dedicated shipping channels and safety zones, install additional buoys, and establish onshore facilities to clearly separate diving areas from fishing lanes. These cases collectively make one thing clear: when a stretch of ocean is used for multiple purposes without a defined framework, conflict between divers and fishermen is virtually inevitable.

The Rashomon of Ocean Governance: A Legal Gray Zone

There are many underlying causes for these conflicts — unclear maritime boundaries, the lack of an effective zoning management mechanism, and insufficient communication between different user groups. But at the root of it all is the fact that Taiwan has yet to establish a clear set of "rules of the road" for the sea. Maritime governance regulations in Taiwan are highly fragmented, resembling a patchwork puzzle assembled from different laws and authorities, with no coherent picture emerging from the whole.

Currently, ocean-related legislation is split primarily between the Fisheries Act, overseen by the Fisheries Agency, and the Regulations Governing Water Recreation Activities, promulgated by the Tourism Administration under the Ministry of Transportation. The former governs fishing operations and fishing ports; the latter regulates recreational activities such as scuba diving and surfing. In practice, however, these two regulatory frameworks have no clear "fence" between their respective jurisdictions at sea. While local governments are empowered to designate marine zones for different purposes, they often struggle to act decisively — due to insufficient signage, limited enforcement capacity, or a reluctance to alienate either side.

The government is currently promoting the Ocean Management Act, which aims to establish more comprehensive spatial planning for marine zones. However, a closer look at Article 5 of the draft bill — which sets out principles for coordinating ocean use — reveals the following:

1. To balance marine environmental sustainability, prioritizing ecological conservation and the preservation of underwater cultural assets.
2. To maintain safety of navigation at sea and maximize public welfare.
3. To safeguard national maritime interests and national security.
4. To align with national policy development without diminishing the sustainability of marine resources, while respecting existing uses.
5. To respect the traditional maritime culture and rights of indigenous peoples.

Notably, the draft contains no explicit provisions for the coordination of marine recreational activities — a gap that is difficult not to find concerning. Furthermore, while Article 6, Paragraph 1 states that competent authorities may designate marine functional zones based on "the needs of industrial development," the marine recreation industry in Taiwan remains relatively marginalized within the broader industrial structure. It also lacks a unified trade association or representative body. When conflicts arise with established industries and existing maritime users, the interests of marine recreation operators and divers may well find themselves at a disadvantage, with no effective channel for representation. Taking stock of these legislative provisions, it is fair to say that the boundary between marine recreation and fishing activities remains firmly in a gray zone.

Are Marine Protected Areas the Answer? Zoning May Be the Greatest Common Denominator

So how do we write rules for a boundless gray sea? Designating marine protected areas (MPAs) has been put forward as one possible solution. By clearly delineating zones where fishing is prohibited or restricted, MPAs can effectively reduce the overlap between fishing vessels and diving activities, lowering safety risks and competition over resources. At the same time, they provide marine ecosystems with room to breathe — contributing in the long run to the sustainability of fishery resources.

Yet the push for MPAs faces enormous challenges. Fishing restrictions directly impact fishermen's livelihoods, and past efforts to establish protected areas have frequently met with strong resistance. Dive operators, on the other hand, may bristle at the constraints imposed by area restrictions. These competing pressures make it genuinely difficult for MPAs to take root.

In the absence of a broad consensus, "zoning management" may be the most pragmatic common denominator available at this stage. This need not take the strict form of a protected area — it can be approached from a more granular, flexible perspective. By clearly demarcating fishing operation zones and recreational activity zones, and coupling these with buoy installations, enhanced signage, and public awareness campaigns, it should at least be possible to reduce disputes arising from unclear boundaries.

The Wanghaixiang Chaoching Bay Aquatic Life Propagation and Conservation Zone, situated on the border between Keelung City and New Taipei City, stands as one of Taiwan's rare examples of well-functioning zoning management. Through the delineation of core zones, buffer zones, and sustainable-use zones, the conservation area enforces strict spatial management — completely banning fishing to allow the rich reef ecosystem to recover, and explicitly prohibiting motorized vessels from entering designated no-navigation areas. Recreational visitors are also strictly regulated and may not cross into fishing vessel lanes. This system has successfully provided a concrete and balanced model for the harmonious coexistence of sustainable fishery resources and tourism activities such as scuba diving.

Finding Common Ground: Making the Ocean Everyone's Asset

From the conflict at Longdong to the cases on Xiaoliuqiu and Orchid Island, one truth is unmistakable: the ocean is a precious shared resource. It is at once the fishing ground on which fishermen depend for their livelihoods and the playground where divers go to explore the unknown. When this precious space generates conflict due to a lack of clear rules, resolving those disputes and creating a win-win outcome will require a collective effort from all parties.

The government and relevant authorities must take a more proactive role in governance — stepping in to actively facilitate harmonious coexistence among all users. Officials should convene stakeholders including fishermen, divers, and recreational operators to establish a regular platform for dialogue and negotiation. These efforts should be paired with practical measures such as buoy installation, improved signage, and public outreach to quickly address disputes caused by unclear boundaries.

In the longer term, regulatory reform must be accelerated. Whether by expediting the passage of the Ocean Management Act — with recreational activity management incorporated — or by amending existing legislation, the government must establish clear boundaries between marine recreation and fishing activities, and build an effective zoning management system. Only when there is a clear legal basis can local governments be given sufficient enforcement authority to draw well-defined routes for different users.

When fishing vessels can return to port safely and divers can explore the sea freely, the ocean can truly become a common asset for everyone. The Longdong conflict may be only the tip of the iceberg — but it offers us a valuable opportunity to think more deeply about how to build a more inclusive and sustainable ocean future.

Further Reading

• Taiwan Marine Protected Areas