Fundamental Questions Missing from the Chujado Islands Offshore Wind Project
By Jungdo Kim, Head of Climate & Ocean Research Division, Climate Ocean Research Institute (CORI)
Controversies over fairness surrounding the Chujado Islands offshore wind project have continued for three years. The problem is that these disputes have blocked essential discussions about the project’s justification and necessity. Indeed, suspicions that the regulatory framework was tailored to benefit specific companies and that official notifications were forcibly amended have overshadowed those fundamental debates. However, even now, we must ask: Is this project truly necessary for Jeju Special Self-Governing Province? And does it have an environmentally and grid-appropriate site? Forcing ahead with a 2.6 GW-scale offshore wind project without addressing such core questions is extremely reckless.
Question 1. Is the Location Suitable?
The most fundamental question begins here: Is the current location truly suitable? Just as important as wind resource quality and community acceptance is an assessment of the site’s environmental suitability. The waters near the Chujado Islands were identified by the Jeju KFEM in an October 2022 statement as a zone of potential ecological harm.
Two main concerns arise: impacts on migratory birds and marine mammals. Regarding birds, the Chujado Islands serve as a major stopover site for migratory species during spring and autumn. Many summer and winter migratory birds also inhabit the area. Literature indicates that 210 bird species have been recorded in the Chujado Islands, of which 90 are seasonal migrants or residents. Among these are seven Natural Monuments, including the common kestrel and Chinese sparrowhawk, and 14 species listed as Class II Endangered Wildlife, such as the Eurasian hobby, peregrine falcon, and osprey. The nearby Sasudo Island is also a breeding site for Columba janthina, a summer breeding species.
These stopover sites are ecologically rare and irreplaceable, having formed over hundreds of thousands of years of evolutionary adaptation. If large-scale offshore wind farms eliminate these spaces, migratory birds will face severe disruption in their routes. It remains unclear whether these ecological functions were adequately considered in site selection.
Impacts on marine mammals, especially whales, are also a concern. The waters off the Chujado Islands are influenced by the Jeju Warm Current, branching from the Kuroshio Current, and are likely to serve as a migration route for various whale species. The sea between Jeju and the southern coast of Korea is considered a rich fishing ground, increasing the likelihood of foraging and habitat use by marine mammals. There have been reports of strandings of sperm whales, pygmy sperm whales, orcas, North Pacific right whales (Eubalaena japonica), and Bryde’s whales in these waters. It is highly probable that the Chujado Islands area is a key migration corridor for whales. In particular, the finless porpoise has been frequently observed near the Chujado Islands.
Given these environmental factors, serious doubts arise about the suitability of this location for offshore wind development. Moreover, the area is under discussion for expanded Marine Protected Area (MPA) designation, and nearby uninhabited islands may also be designated. Nevertheless, Jeju designated the site as a planned wind power area without thoroughly reviewing these fundamental environmental considerations. Even more concerning is the fact that no detailed ecological survey has been conducted for this marine area. If the public tender proceeds without evaluating the environmental suitability of the site, all project risks will fall on the shoulders of Jeju Energy Corporation and private developers.
Question 2. Where Does the Electricity Go, and Can It Be Managed?
The key to electricity generation lies in matching supply to demand. If supply falls short, blackouts occur; if there’s overproduction, it degrades power quality, causing problems in the grid and for electrical devices. In 2024, Jeju’s peak power demand was 1,179 MW, with a reserve margin of 22.2%—well above the government’s target of 13%. Except for one or two months in summer, the reserve margin exceeds 35%, and in November 2023, it even reached 70%.
In other words, Jeju is producing more electricity than it needs. As a result, wind and solar power are frequently curtailed or excluded from real-time bidding markets, revealing a systemic inability to accommodate renewable electricity. Despite this, plans to add another 2.6 GW of generation capacity lack reasonable justification.
To address this surplus electricity issue, three solutions are viable. First, flexible shutdown or phased retirement of fossil fuel plants in Jeju. Second, expansion of large-scale battery energy storage systems (BESS) to absorb excess power. Third, enhancing grid capacity through smart grid implementation and transmission network upgrades. Notably, Jeju cannot handle transmission upgrades alone—it needs a power interconnection system to deliver surplus electricity to metropolitan areas via Jeollanam-do.
Although such measures are under discussion, no clear answers have emerged. There is indeed a transmission project being planned to connect Jeju and Jeollanam-do to the Seoul metropolitan area, and construction may begin soon. However, even if launched now, it is expected to take about ten years to complete. Relying on this project would undermine Jeju’s core vision of becoming a self-reliant renewable energy island—that is, producing only as much as it consumes.
Pursuing large-scale offshore wind projects without planning for corresponding grid infrastructure reveals a lack of realistic assessment. It essentially admits to pushing a massive project without foundational planning. Rather than evaluating appropriate capacity, the focus appears to have been on accommodating the Norwegian state-owned company Equinor’s existing project proposal.
Another issue is the destination of Jeju’s surplus electricity. If Jeju cannot absorb it, the power must go to Jeollanam-do. However, there is no confirmation that such coordination has taken place. Given that Jeollanam-do is also expanding renewable energy to boost its local economy, it may not be willing or able to accept electricity from Chujado Islands.
So far, the only visible plan appears to involve producing hydrogen on a large scale using surplus electricity from Chujado Islands. However, with a global policy shift toward “clean hydrogen,” especially led by the United States, it is uncertain whether the green hydrogen strategy will succeed. Moreover, it remains doubtful whether massive hydrogen production and storage facilities can be installed on Jeju Island.
Ultimately, what Jeju needs now is not the aggressive pursuit of mega-projects, but realistic project sizing and concrete interconnection planning based on actual power demand and grid conditions. Projects in the hundreds-of-megawatts range—feasible medium-scale developments—should be prioritized, along with preparatory steps like fossil fuel reduction, energy storage expansion, and grid infrastructure development.
Jeju Energy Corporation should consider returning to the earlier “public-led 1.0” model, where it first secures suitable sites and conditions before inviting private developers. This approach is the most rational response to today’s uncertain landscape.
The current approach—rushing to secure project licenses without solid planning—raises concerns about eventual resale to third parties, the so-called “hit and run” problem. What Jeju needs now is not reckless speed but a cautious and responsible renewable energy deployment strategy.
Question 3. Is Jeju Energy Corporation recognized as a key implementing entity?
One of the most serious issues revealed during the recent regulatory revision process is the infringement of Jeju Energy Corporation’s managerial autonomy. The corporation is not a mere overseer but a principal actor in this project—an official partner in the Chujado Islands offshore wind project through a consortium with private companies. Given that its capital and personnel are directly involved, selecting partners and reviewing project conditions are core responsibilities and rights of the corporation.
However, Jeju is attempting, through this regulatory change, to restrict the corporation’s access to basic wind resource measurement data—essential for assessing the project’s feasibility. This would effectively disable Jeju Energy Corporation’s ability to evaluate the project or select suitable partners. Blocking access to key data in a public-led project not only undermines its quality but also reduces the potential benefits that should return to the local residents.
Of course, local governors have the authority to appoint or dismiss public enterprise executives and to approve project plans. However, if this authority is used to arbitrarily interfere with or distort managerial decisions, it constitutes a clear abuse of power and a violation of public enterprise autonomy. Local public corporations are entrusted with authority from local governments and are meant to operate based on autonomy and accountability, with the ultimate goal of enhancing operational efficiency and public welfare.
If the proposed regulatory revision is finalized as is, it will be remembered as a case that undermined public enterprise autonomy and compromised the legitimacy of the project. What Jeju needs now is not to push the corporation into crisis by shaking the foundations of legitimacy and public interest, but to create institutional conditions that allow Jeju Energy Corporation to make informed decisions and exercise real authority.
From these three questions, one clear conclusion emerges: there is no reason to rush forward with this project. The climate crisis is not a valid excuse here. Over nearly three years of Governor Oh Young-hun’s administration, there has been no notable climate policy aimed at reducing greenhouse gas emissions, nor any report showing that such emissions have actually declined.
Moving forward hastily while fueling suspicions of preferential treatment for certain developers ultimately undermines both the sustainability and momentum of renewable energy development in Jeju. Above all, what is urgently needed now is a policy direction grounded in sound principles. The farther a policy strays from its foundations, the more vulnerable it becomes to instability and policy failure. To ensure consistent and resilient implementation, the policy must be guided by the principles of public interest, fairness, and equity.