MANAGING VIBRANT STREETS 2 Street Performance Policy in Hong Kong (Interim Report) Carine Lai | Ximin Zhou September 2020 i About Civic Exchange Civic Exchange is an independent public policy think-tank with a vision to shape a liveable and sustainable Hong Kong. Our mission is to engage society and influence public policy through research, dialogue and the development of practical solutions. Our research covers four major areas: environment, economy, society, and governance, with an overarching framework of promoting wellbeing. Civic Exchange is regularly ranked among the top 50 environmental think-tanks in the world by the Lauder Institute at the University of Pennsylvania. To read more, go to www.civic-exchange.org About the Authors Carine Lai is a researcher with a special focus on urban design, the public realm, and open space. She is also a visual artist with an interest in data visualisation. She is currently a project manager at the WYNG Foundation, and was previously a project manager at Civic Exchange from 2012 to 2016. Past topics of research have included open space provision, urban wellbeing, walkability, and urban renewal. Carine has a MSc in International Planning from University College London and a bachelor’s degree in Political Science and Studio Art from Tufts University. Ximin Zhou is a researcher with a focus on the social impact of urban issues and action- oriented research informed by design thinking and ethnographic methods. She is currently a researcher at Civic Exchange, with previous experience in academic and commercial research, as well as marketing across sectors. Dr Zhou holds a Doctor of Philosophy in Social Anthropology from the University of Manchester and a MSc in Social Anthropology from the London School of Economics. ii Preface and Acknowledgements Reshaping public space is crucial to enhancing walkability Civic Exchange is grateful to the study’s authors, Carine and improving urban liveability. This is a fact that urban Lai and Ximin Zhou, for their continual efforts and planners and policymakers alike increasingly recognise. diligence in planning, designing and conducting this The Hong Kong Government pledged in recent Policy research to help build a more sustainable and liveable Addresses and in its territorial development strategy to urban environment for Hong Kong and its citizens. Carine improve the pedestrian environment by encouraging Lai was kindly seconded to Civic Exchange by the WYNG walking and promoting diversity and vibrancy across Foundation for this project. Hong Kong’s streets and districts. In Hong Kong’s highly dense urban environment, acknowledging the function of We would like to thank and acknowledge the streets as a convenient and efficient means of transport contributions of the Civic Exchange Team Dr Berto Lee is an important first step. But recognizing their wider and Fiona Lau, Operations Manager John So, and Intern role in creating attractive, liveable, and social places can, Daniel Kan, as well as former Senior Advisor Natalie Chan however, be challenging. and former Programme Manager, Yvonne Law. Expanding on Civic Exchange’s long-standing work in We would also like to thank Civic Exchange board urban planning, walkability and public open spaces, member Paul Zimmerman, Civic Exchange Walkability “Managing Vibrant Streets 2: Street Performance Policy expert Dr Louie Sieh and Walk DVRC’s Jennifer Walker in Hong Kong”, serves as a continuation to our previous Frisinger, who lent their time, expertise, and professional street management study, “Managing Vibrant Streets”. insights in peer-reviewing this report. Joyce Lau edited The 2018 study laid the groundwork for the current the manuscript, Ivy Yeung provided Chinese translations, work by analysing gaps in the Hong Kong regulatory and DESIGNORM created the cover design and layout. framework and the governing responsibilities of street activities. It specifically identified street performance The valuable input of interviewees comprises the as one of the most significant street management foundation of this study, and we are thus thankful challenges and source of conflict due to outdated for the contributions of the following people. Street regulations and ineffective administrative mechanisms. performers: Jay Lee, Pong Yat-ming, Heyman, Gustavo, “Managing Vibrant Streets 2” sets out to provide specific Anna, Mr. Kong, Mong Kok Roman, K.K., Yan Yan, Arrvin, recommendations on the development of a modern Ah Sun; District Council members: Cheng Lai-king, street performance management system suitable for Cherry Wong and Yu Tak-po; the office of Legislative Hong Kong. The most recent work is based on direct Councillor for the Sports, Performing Arts, Culture and engagement of key local stakeholders who have shared Publication Functional Constituency: Ma Fung-kwok, the interests and potential for crafting a way forward, as well spokesperson of the Tsim Sha Tsui Residents’ Concern as on the review of international experiences and best Group: Mary Melville; Hong Kong Federation of Youth practices. Groups: Michelle Ho; Manager for Corporate Social Responsibility of MTRC: Dorothy Lau; Senior Manager This interim report outlines how street performance for Corporate Social Responsibility of MTRC: Simpson policy ideas from overseas could be adapted to Hong Lo; the Leisure and Cultural Services Department; the Kong’s context. The stakeholder engagement shows that Food and Environmental Hygiene Department; the Hong there is ample room for change and an acute need for Kong Police Force; Walkability Task Force of the Transport a more proactive, comprehensive street performance Department as well as all other anonymous participants. management policy. Phase 2 of this work will include concrete recommendations on how such a street Street performers can play a pivotal role in enhancing management policy should be designed and applied. the cultural life of public space. With this work, Civic Exchange aims to establish a pragmatic consensus on This research (Project Number: 2019.C5.004.19C) has how street performance should be (re-)integrated into been funded by the Public Policy Research Funding public open spaces – balancing the needs of street Scheme of the Policy Innovation and Co-ordination performers with those of other public space users. Office of The Government of the Hong Kong Special Administrative Region. We would like to express our sincere appreciation for its invaluable support. Evan Auyang Chairman of the Board, Civic Exchange 1 Contents SECTION 1: HOW CAN STREET PERFORMANCE BE AN ASSET TO CITIES?............................................... 5 1.1 Street performance and urban liveability ........................................................................................ 5 1.2 Street performance as a form of popular entertainment: a cultural history .................................. 6 1.3 Street performance as a street and public space management issue ............................................ 7 1.3.1 Failure of the Sai Yeung Choi Street pedestrianisation scheme ........................................... 7 1.3.2 Social backlash against street performance ......................................................................... 8 1.3.3 Further consequences for public spaces ............................................................................... 8 1.4 Disjointed government initiatives .................................................................................................... 9 SECTION 2: OBJECTIVES AND METHODOLOGY ...................................................................................... 12 2.1 Study objectives ............................................................................................................................. 12 2.2 Phase 1 – Stakeholder mapping and international case studies ................................................... 13 2.2.1 Area of study ....................................................................................................................... 13 2.2.2 Stakeholder mapping........................................................................................................... 14 2.2.3 Desktop research: International case studies and local institutional context .................... 15 2.3 Phase 2 – Delphi questionnaire (preview) ..................................................................................... 16 SECTION 3: BENEFITS, PROBLEMS AND OPPORTUNITIES OF STREET PERFORMANCE .........................17 3.1 Street performance and its spillover effects ................................................................................. 17 3.2 Benefits of street performance ..................................................................................................... 18 3.3 Street performance problems ....................................................................................................... 20 3.3.1 Noise .................................................................................................................................... 20 3.3.2 Obstruction .......................................................................................................................... 22 3.3.3 Taste ..................................................................................................................................... 22 3.4 Perceptions of street performer legitimacy in public space usage ............................................... 24 3.5 Location .........................................................................................................................................