Public participation and application of environmental valuation in urban green space planning : example from green belt (re)zoning

Abstract

Urban green space (UGS) planning is an essential part in achieving sustainability and liveability, which have been receiving more attention in the increasingly dense and land-lacking compact city of Hong Kong. The importance of public participation in quality UGS planning has been supported by various studies. This study aims at investigating the current situation and limitation of public participation in UGS planning in Hong Kong, taking Green Belt (GB) rezoning as an example. Foreseeing awareness, knowledge and public view quantification as possible issues, the research also extends to evaluate on the potential of environmental valuation techniques, particularly approaches using behavioral linkages, in improving the involvement of members of public in UGS planning. In particular, the application of contingent valuation method, a common stated preference approach, was demonstrated.

Two main research questions were proposed. The first one concerned how well the public was involved in UGS planning. Further sub-questions included what the existing official and unofficial channels for participation were, and to what extent the public was utilizing these channels of participation. The second research question was whether environmental valuation techniques offered a possibility in enhancing public participation. Attention was paid to whether the public was prepared for such techniques.

Considering the wide range of UGS in Hong Kong, GB was chosen as the object for study. The reason was that the land use is generally designated with a function of passive recreation, and to some extent in compensation for the shortage of UGS. Secondly, it is often located among urban structures and is relatively more accessible when compared to other green spaces. Third, its involvement of the public could more easily be assessed as a well-defined planning process has to be gone through in its planning. Relevant documents and data are more available. Another important reason for selecting GB regarded the recent controversy on its rezoning for residential development in addressing housing supply issues. This touched upon the contradiction between UGS conservation and development, and coincides with the issue concerned – how to truly take into consideration various public views?

Various methods were used to address the research questions. Part one of the study was done in answer to the first key question regarding how well public involvement was. An institutional framework review was first done to set forth the existing channels for participation, particularly the opportunities of participation, available data and publicity, timeline and decision-making process and power involved. Subsequently the S.12A applications involving GB rezoning in the past decade and the case of Amendment of Tai Po Outline Zoning Plan involving a number of GB zones to be rezoned as residential land use were studied. Simple statistical analyses, review of processes, interviews of stakeholders and online questionnaire survey were done. Focus was given to the pattern of participation, who the participating public were, the factors affecting their participation and their knowledge and ability for participation.

Part two of the study concerned whether the public was prepared for environmental valuation techniques in assessing their views on UGS planning, thus giving clues on whether such techniques were possible useful tools in enhancing public involvement. A demonstrative contingent valuation survey on GB was done with people who concerned about the Tai Po case. In the course of the survey, their responsiveness, willingness-to-pay, understanding and motives for paying, and socioeconomic factors were observed.

The study proved that public knowledge and awareness, as well as ambiguous public view consideration were the major limitation in the planning of GB, one of the important UGS in Hong Kong. Such limitation hinders trust between the public and the authority, and obstructs optimal UGS planning. Contingent valuation method appeared in the demonstration as a comprehensible tool for the public in increasing their awareness and stimulating their interest and investigation to the issue, and their response revealed a generally good understanding of the value of UGS and willingness-to-pay. Thus the study concludes that this method is potentially useful in enhancing public involvement in UGS planning. Further study to other forms of UGS and environmental valuation applications were suggested.