On devices running Android 8.0 (API level 26) and higher we can use BLE without requiring the ACCESS_FINE_LOCATION or BLUETOOTH_ADMIN permission.
in this page google show an example for it.
This document explains how to implement companion device pairing on Android 8.0 (API level 26) and higher, allowing apps to scan for nearby Bluetooth or Wi-Fi devices without requiring the ACCESS_FINE_LOCATION permission, thus maximizing user privacy.