Reorienting historic public rental housing estates under the 'refined policy' in Hong Kong : a case of Sai Wan Estate

Abstract

Public Rental Housing (PRH) estates represent a broad spectrum of collective memory shared by generations of Hong Kong people. Despite vast research on the historical and architectural significance of PRH estates in Hong Kong, little addresses the nature of policies and community discourse related to their redevelopment. This study is an examination of the “Refined Policy on Redevelopment of Aged PRH Estates” implemented in 2011 by the Housing Authority, through a case study of Sai Wan Estate. An example of the Slab type of Public Housing Estate from the 1950s, Sai Wan Estate has undergone facility upgrading in 2009 and will not be redeveloped for another 15 years under the “Refined Policy.” This case study provides a platform for assessing the effectiveness of the four main criteria under the “Refined Policy,” namely structural conditions, maintenance cost, economic potential and tenant relocation. The possibility of strategically incorporating repair, revitalisation and redevelopment programmes into the decision-making mechanism of the Policy is explored. Data for this study is obtained from 1) interviewing both the community of Sai Wan Estate and an official of the Hong Kong Housing Authority; and 2) conducting site visits. This study helps to assess whether the Policy has been able to sufficiently address PRH estates as historic buildings, instead of structurally distressed urban fragments. Results suggest that the Policy should go beyond financial or structural considerations in order to obtain a community-based focus. A comprehensive set of criteria should be guided by heritage values, tenant participation, technical factors and redevelopment potentials. In addition, the roles of the various government departments and the decision-making process should be reinforced by considering the wider administrative and planning frameworks. This study lays the foundation work for further research exploring the relationship between public housing policies and heritage practice in Hong Kong.