Effective governance of recreational open space? Insights from a case study in Hong Kong

Abstract

Open space is regarded as an important part of cities, not only for landscaping and greening purposes, but also for the recreational benefits that it provides. As such, different cities across the world have developed regulations governing recreational open space, especially in high-density cities where there is intense competition between different land uses. In Hong Kong, which operates a zoning system, the land use zone of “Open Space” designates sites for provision of open space and recreation facilities. However, in recent years, due to high demand for public rental housing, the government of Hong Kong has tried to secure land for public housing development through re-zoning Open Space sites to residential use, which has triggered opposition from affected stakeholders. This paper examines a recent application for re-zoning in the urban area of Hong Kong. Through reviewing planning documents and minutes of committee meetings, as well as stakeholder interviews, this case study seeks to explore several questions: What are the statutory and non-statutory regulations governing provision of open space and recreation facilities in Hong Kong? Why was there opposition to re-zoning? To what extent is the existing regulatory framework effective in mediating conflicts? The findings indicate that the existing regulatory framework permits a degree of flexibility, which in this case, helped speed up delivery of public housing in response to changing socio-economic conditions. Nevertheless, the findings also reveal the inadequacy of tools for forward planning, which potentially constrains the scope of recreational activities in the city.