The Taitung County Government planned to develop what was then Asia’s largest solar power project on 226 hectares of land in the Zhiben Wetland and along the north bank of the Zhiben River. However, the area was not only the traditional territory of the Kadadibu tribe but also a habitat for many first-class protected bird species, thus sparking controversy. During the one-year feasibility assessment process, the Taitung County Government only held one symposium and one briefing on January 5, 2018. Without conducting sufficient investigation into the human and ecological aspects or consulting with the tribe, the government announced the “Tender for the Installation of Solar Power Generation Equipment and Education Demonstration Zone in the Zhiben Jiankang Section” on January 10, 2018. On April 2 of the same year, the bid was won by Shengli Energy Co., Ltd., a subsidiary of the Singapore-based company “Weineng Energy Company”. The Taitung County Government and the participant, Shengli Company, signed the lease agreement for the disputed development project on April 23, 2018.

Shengli Corporation planned to install 161 hectares of ground-mounted solar photovoltaic panels. The operational plan was approved before Taitung County Magistrate Huang Chien-ting stepped down (December 13, 2018), and the Taitung County Government estimated it could earn NT$200 million in royalties annually. On December 21 of the same year, Shengli Corporation, in accordance with Article 13 of the “Regulations Governing Participation in Indigenous Tribes through Consultation” (hereinafter referred to as the Consultation and Consent Regulations), applied to the Taitung City Government to convene a tribal meeting. Because the Kadadibu tribe failed to convene its tribal meeting as scheduled, Shengli Corporation, in accordance with Article 15 of the Consultation and Consent Regulations, applied to the Taitung City Government to convene the tribal meeting on its behalf on June 1, 2019. The vote at that meeting was 187 in favor, 173 against, and 1 invalid vote. In accordance with Article 19 of the Consultation and Consent Regulations, the resolution approved the disputed development project.

In order to implement this photovoltaic development project, Shengli Corporation planned to establish the Shengli Zhiben Power Plant. In accordance with Article 3, Paragraph 1, Item 1 of the Electricity Registration Rules, it applied to the Ministry of Economic Affairs for a permit to establish the plant. After review, the Ministry of Economic Affairs granted permission for the establishment on February 11, 2020, with letter number 10900112660 (hereinafter referred to as the original decision). The Kadadibu tribe, dissatisfied with this decision, filed this administrative lawsuit.