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Chapter 4 : Recreation, Open Space and Greening
1.1 Recreation-An Essential Land Use 1.3 Study of Leisure Habits and Recreation Preferences 1.4 Key Trends in Recreational Pursuits 1.5 Principles of Recreation and Open Space Planning 1.7 Hierarchy of Recreation and Open Space 1.8 Standards for Provision of Open Space 1.9 Ratio between Active and Passive Open Space 1.10 Calculation Towards Open Space Standards 1.12 Locational Guidelines for Open Space 1.13 Design Guidelines for Open Space 1.14 Standards for Provision of Recreation Facilities 1.15 Calculation Towards Recreation Facilities Standards 1.16 Zoning for Recreation Facilities 1.17 Locational Guidelines for Recreation Facilities 1.18 Recreation Facilities for the Elderly 1.19 Use of Reservoirs for Recreation 1.20 Recreation in the Countryside 1.21 Implementation in Provision of Recreation Facilities and Open Space 2.1 Planning for a Greener City 2.3 Scope and Application of Planning Guidelines on Greening 2.4 Terms and Definitions in Greening 2.6 General Principles of Greening 2.7 Planning Guidelines on Greening 2.8 Conservation of Vegetation Appendix 1 Typical Calculation of a District Requirement for Recreation Facilities
December 2007 Edition
1.1.1 Pressure for land is extreme in Hong Kong and it must be recognised that there are competing demands for land. However, Government acknowledges that recreation stems from a basic human need for activities which are essential to the mental and physical well-being of the individual and the community as a whole. It therefore encourages participation in recreational pursuits and seeks to ensure that appropriate opportunities are available to meet the needs of the people of Hong Kong. Recreation is accepted as an essential activity for which land must be allocated. However, it is also recognised that much active recreation can be provided for without the need to set aside exclusive land areas. For example, sports centres are already being provided in multi-use buildings, and greater use is being made of marine areas. 1.1.2 Apart from recreation use, open space also allows the penetration of sunlight and air movement, as well as for planting areas for visual relief. It is also an essential land use element in urban design. These functions are particularly important in a high density, high-rise built-environment like Hong Kong.
1.2.1 Recreation ranges from home entertainment such as playing mahjong and watching television, through passive activities such as strolling and playing tai-chi in the morning, to active games and competitive sports. This section is concerned with those aspects of recreation which :
1.2.2 The planning standards and guidelines set out later in this section have been formulated to provide an equitable basis for the reservation of land for recreation facilities and open space; and to guide the planning, distribution and, where appropriate, design of these facilities. 1.2.3 There are two sets of standards set out later in this section, namely one for open space based on a level of provision for each person of the population, and the other for recreation facilities based on a range of population thresholds. These two sets of standards are applied simultaneously in planning work. 1.2.4 The standards set targets which may not be achieved all at once, nor uniformly throughout the Territory. Areas of new development should be planned to meet the standards, whereas old, developed areas should be planned to pursue incremental improvements towards the standards through such means as urban renewal.
1.3.1 Planning standards and guidelines for recreation facilities and open space were last formulated in the late seventies and approved in 1981. Since then, there have been significant changes in the demographic structure and socio-economic characteristics of the population in Hong Kong. Fertility is declining; households are becoming smaller; average education attainment is getting higher; the society is becoming more affluent; and, above all, the population is ageing. 1.3.2
Under the Metroplan Selected Strategy endorsed by ExCo in September 1991, a broad framework for open space and recreation facilities has
been formulated with the objective of improving the quality of the living and working environment in the Metro Area. In 1992, a 1.3.3 In view of the changing circumstances, and to take into account the proposals in Metroplan and the Territorial Development Strategy Review, in late 1995 consultants were commissioned to undertake the 'Study of Leisure Habits and Recreation Preferences' to assess the leisure habits and recreational preferences of the people of Hong Kong and to formulate planning standards and guidelines to meet their needs.
1.4.1 As part of the study, a survey was undertaken which has identified the following key trends in recreational pursuits :
1.4.2 These findings provide a good basis for the up-dating of the planning standards and guidelines. In the planning and provision of recreation facilities and open space at the strategic, district and local levels, reference should also be made to these findings.
1.5.1 The following four principles, namely Quantity, Quality, Good Practice and Vision, have guided the study mentioned in para. 1.3.2 above. These are also relevant considerations in the planning and provision of recreation facilities at the strategic, district and local levels :
1.6.1 The following are definitions of some technical terms which are used in the section :
1.7.1 In considering the function, nature, form and intensity of development for open space and recreation facilities, and the appropriate zoning on outline zoning and outline development or layout plans, it is useful to have regard to the hierarchy of recreation and open space as summarised in Figure 1 and briefly described below :
1.7.2 In urban and rural areas, Local Open Space should provide predominantly passive recreation for local residents close to home; District Open Space should provide active and passive recreation for a wider district population; and Regional Open Space should be strategically located to serve the territorial, mobile population of residents and overseas tourists. In view of the dual function that Regional Open Space would serve both local and overseas visitors, it should provide facilities with a greater scope than the core activities. 1.7.3 In the countryside and coastal areas, country parks provide a natural environment for recreation, and water recreation areas define waters which are suitable for water sports. 1.7.4 Throughout the Territory, amenity areas provide landscaping for visual relief, enhance civic design and contribute towards a better environment.
1.8.1 The standards set out in section 1.8 and summarised in Table 1 cover Recreation Open Space which is required to meet the active and passive recreational needs of the population, either within the residential neighbourhood or centrally located to serve a wider area. Green Space such as Amenity Areas, Country Parks, Green Belts and Coastal Protection Areas which do not readily lend themselves to the formulation of any standards are excluded. 1.8.2 In the urban areas, including the Metro Area and the New Towns, the standard for provision of open space is a minimum of 20 ha per 100,000 persons i.e. 2m2 per person, apportioned as follows:
1.8.3 Regional Open Space is provided as a 'bonus' above the minimum standard. However, in the Metro Area, 50% of the Regional Open Space provision can be counted as District Open Space. This acknowledges the high level of 'out of district' workers or visitors who use recreation open space in these districts and the role of urban fringe parks in the peripheral Metro Area to meet the recreational needs of the population. 1.8.4 In public housing estates and comprehensive residential developments, the standard of provision for Local Open Space is 1m2 per person throughout the Territory. 1.8.5 In industrial, industrial-office, business and commercial areas, the standard of provision is a minimum of 5 ha per 100,000 workers i.e. 0.5m2 per worker, and should mainly be used for Local Open Space for the enjoyment of workers. 1.8.6 In rural townships such as Mui Wo and Sai Kung, the standard of provision is the same as for the urban areas, that is a minimum of 2m2 per person, split equally between District Open Space and Local Open Space. The same standard of provision also applies to the outlying islands. 1.8.7 In rural villages and small residential developments in the rural areas, the standard of provision is a minimum of 1m2 per person for Local Open Space. Local Open Space managed by the Leisure and Cultural Services Department should preferably have a minimum size of 500m2. Noting the rural locations of these settlements which enable the residents to have more easy access to the countryside, and the small population level, there is no requirement for the provision of District Open Space. Table 1 : Standards for Provision of Open Space
1.9.1 In the provision of land for public open space, a distinction should be made between areas for active and passive recreational uses. As a general guide, a 3:2 active to passive ratio should be applied in District Open Space to provide space for outdoor core activities as well as for passive recreation. 1.9.2 Local Open Space is primarily intended for passive use including children's playground, and hence the active to passive ratio does not apply. There are, however, situations such as in public housing estates and comprehensive residential developments where the population level requires the provision of certain recreation facilities. In such cases, some areas of the Local Open Space would need to be set aside for active uses to accommodate the required facilities. 1.9.3 On the outlying islands, where there are fewer sites for active recreation, the active to passive ratio of 3:2 should be applied to both District and Local Open Space.
1.10.1 The following criteria are provided to assist planners and others concerned in calculating the provision of open space and deciding on its countability towards satisfying the standards of provision :
1.10.2 The slope correction factor recognises that the sloping parts of a site may not be useful for recreational use. The following modifications are applied to the space standard :
1.10.3 Open space which does not meet the above criteria, but which is intended for planting or as an environmental buffer should be zoned "Amenity" and not counted; or where the site comprises existing natural vegetation, it should be zoned "Green Belt". 1.10.4 A list of examples of special situations is provided below for reference of planners and other concerned in assessing the countability of open space : Covered Areas within Open Space
Circulation Routes within Open Space
Utility Reserves and Emergency Vehicular Access
Substandard Recreation Facilities
Covered Service Reservoirs
Waterfront Promenades
1.11.1 The following zonings for Recreation, Open Space and Green Space should normally be used on statutory town plans :
1.11.2 The following zonings for Recreation, Open Space and Green Space should normally be used on administrative town plans :
1.12.1 Open space must be planned as a land use in its own right. It should be planned in the right location and should not be the remainder when other land uses have been provided. It should also be accessible, suitable, functional and usable and not merely an area included to make up the required standards. However, it has to be accepted that conditions are not ideal in Hong Kong and it may not always be possible, particularly in the old built-up areas, to achieve even the proposed minimum standards. In planning the location of open space, the visibleness of the open space from public roads and accessibility requirements of all segments of the population should be taken into account, including the disabled to enhance as wide usage as possible. 1.12.2 Regional Open Space, intended to function as large 'green lungs' within built-up areas and expected to draw visitors from all over the Territory and patronised by overseas tourists, should be located close to major public transport routes and take advantage of natural landscape, waterfront, harbour views and/or views to special features. Extensive woodland areas at urban fringes where opportunities are available for specialist recreation facilities are also good locations. 1.12.3 District Open Space should be located where there is sufficient flat land to accommodate the core activities, easily accessible and not isolated. The locations of active recreation facilities should be such as to minimise the potential disturbance to nearby residents from noise and floodlighting. In rural areas, District Open Space should be located within the rural townships. 1.12.4 Local Open Space should be located within short walking distance from the residents it intends to serve, preferably within a radius of not more than about 0.4 km. In public housing estates and in private comprehensive residential developments, Local Open Space may be provided on podium. In industrial areas, Local Open Space could act as a buffer between the industrial areas and adjacent uses.
General Design Guidelines 1.13.1 Safety is a major consideration in open space design, in respect of location, the facilities provided, as well as the detailed treatment of play equipments. To enhance usage, entrance to open space should be easily identifiable and accessible. There may be a need to centralise active recreation facilities to confine the impacts of noise and movement of users. Children's play areas should also be confined for easier supervision by parents. Existing natural landscape features should be retained wherever possible to help create local identity. Adequate lighting should be provided in shaded sitting-out areas together with other necessary street furniture. Environment 1.13.2 The environmental guidelines as set out in Chapter 9 of the HKPSG on 'Environment' should be applied in designing open space. Avoid locating active recreation facilities within close proximity to main roads and such facilities, if provided within 50-100m of an industrial area, would need special design considerations. Where space permits, planting should be combined with earth-mounding to act as a buffer to polluting sources. Special Needs for the Disabled and the Elderly 1.13.3 Provision of the following facilities should be considered to cater for the special needs of the disabled and elderly people: public toilets; shaded planting areas for walking and sitting; adequate lighting; emergency phones; handicapped facilities; visual-free walking areas; ramps with handrails in preference to steps; and car or bus dropping-off points near to venues. 1.13.4 Access for the disabled should be provided in accordance with Buildings Department's Design Manual on 'Barrier Free Access, 1997' and Transport Department's Transport Planning and Design Manual. 1.13.5 In addition, ensure safe access to the open space and recreation facilities, and where access routes crossing busy roads, provide safe crossings.
1.14.1 Recreation facilities are provided either outdoors within active open space; or indoors such as within recreation buildings or complexes, or in designated areas within composite developments. The standards set out in section 1.14 cover recreation facilities that are provided both indoors and outdoors. They also include facilities for popular recreation activities which are termed as 'core activities'. 1.14.2 Standards for recreation facilities are applied simultaneously with the standards for open space as set out in section 1.8 above. Core Activities 1.14.3 'Core activities' are those recreation activities for which facilities are provided by the Government in accordance with stipulated population-based standards within each district. The purpose is to ensure a balanced provision of public recreation facilities that enables a variety of recreational pursuits for all age groups. These facilities are intended to cater for both beginners and occasional players, and for those who wish to develop their skills in a more competitive environment of organized sports. A list of the 'core activities' is provided in Table 5 below : Table 5 : Core Activities
1.14.4 There are three elements in the planning standards for the provision of facilities for the core activities, as follows:
1.14.5 To assist planners in assessing the total space required by core activities in a district, the following calculation method is suggested:
1.14.6 Where sites are available for purpose-built recreation buildings, and where the area available for active open space is broadly equivalent to or exceeds the area required by outdoor core activities, then the plan should be viable. A sample calculation is shown at Appendix 1 : Typical Calculation of a District Requirement for Recreation Facilities. 1.14.7 In practice, it will seldom be possible to plan for a whole district at one time; planning for smaller populations of 30,000 - 50,000 are more common. Unlike the standards for open space (section 1.8 refers) which apply pro rata to population of any size, a mechanical application of the standards for recreation facilities to a series of smaller populations may result in under-provision of facilities. When planning recreation facilities, it is therefore necessary to:
Major Facilities 1.14.8 Six of the core activities are best provided indoors, namely badminton, squash, table tennis, fitness/dance, gymnastics and swimming. Some outdoor facilities may also be provided indoors such as tennis, basketball and volleyball. The venues for indoor core activities are sports centres, leisure centres or purpose-built facilities within composite developments. Leisure centres are proposed as a new facility to cater for family-based recreation needs. Sports and field events are provided in sports grounds. Besides, activities like rugby/baseball/cricket are proposed to be accommodated in multi-purpose grass pitches. In addition, standards are also proposed for sports stadium and water sports centre to cater for the needs of specific sports and water-based recreation. Sports and Leisure Centres 1.14.9 Sports Centres cater for a range of core activities including badminton, squash, basketball, table tennis, fitness, dance and gymnastics. Where the venues provided within are also used for some outdoor activities, they are regarded as a 'bonus' provision. There are two such types of centres, their standards for provision and range of facilities available are summarised in Table 8, and a brief description is given below :
Multi-Purpose Grass Pitches 1.14.10 Multi-purpose grass pitches are intended for a variety of sporting uses, in particular for conducting the core activities of rugby, baseball and cricket. As the use of grass pitches is more flexible than hard-surfaced pitches, they can also be used for other sport activities such as football matches and football training. The standard of provision is one multi-purpose grass pitch per district. The site area required is 1.2 ha. Sports Complexes/Sports Grounds 1.14.11 A Sports Complex is a sports ground which is developed together with other outdoor and/or indoor sports facilities such as tennis courts, basketball courts and squash courts. A Sports Ground contains facilities for all athletic track and field events on an infield grassed area which is also suitable for high graded soccer matches. The running track should be 400m long, and of an all-weather construction. Spectator accommodation is provided for a capacity of up to 10,000 people. 1.14.12 At present, although sports grounds are sometimes also used for professional and higher-graded soccer matches, their main function is mainly to provide venues for educational institutes e.g. primary and secondary schools, to hold sporting events. 1.14.13 In the urban areas and the New Towns, the standard of provision is one Sports Complex/Sports Ground per 200,000 - 250,000 population. The site area required is a minimum of 3 ha. The site should be flat, generally north-south oriented and conveniently served by public transport. Due to its inaccessibility to the general public, the football pitch within a sports ground is not countable towards core activity provision. Stadia 1.14.14 There are three types of Sports Stadia, each with different functions, as follows :
Swimming and Leisure Pool Complexes 1.14.15 In the urban areas, the New Towns and the rural townships, the standard of provision is one Swimming Pool Complex per 287,000 population i.e. 1m2 water surface area per 85 persons. A site area of 2.0 ha is required, subject to actual site situation. 1.14.16 The standard of provision for leisure pools is one Leisure Pool per district. An area of between 0.6 to 2.0 ha is required, subject to actual site situation. The minimum water area should be 900m2 for an operational capacity of 3m2 water surface per person. Leisure pools may be implemented by re-fitting part of existing Swimming Pool Complexes or by providing leisure pools within Leisure Centres (see para. 1.14.9(b) above). 1.14.17 The alteration of existing Swimming Pool Complexes to include leisure pools should still retain at least one standard swimming pool per district, where swimming courses, training and school competitions can be held. Where resources permit, new pools should be heated to promote year round swimming habits. Water Sports Centres 1.14.18 It is now a Government policy to encourage the development of water sports facilities. No set standard of provision can be set as the sites where such facilities can be developed vary, as do the water conditions for different water sports. Sites suitable for beginners and enthusiasts should be sought for canoeing, dinghy sailing, rowing and windsurfing. Development of safe facilities should include an Environmental Impact Assessment of both land based facilities and the area of inshore waters. Water Sports Centres are currently provided by the Leisure and Cultural Services Department at Tai Mei Tuk, Chong Hing, Wong Shek, St. Stephen's Beach and Stanley Main Beach. 1.14.19 Other organizations such as some National Sports Associations and the Hong Kong Tourism Board, have proposed additional centres for water sports. Initiatives for development by private agencies should be encouraged in water areas that are suitable and safe for the activity proposed. The inshore water recreation areas where facilities and activities may be located are shown in Figure 2.
1.14.20 Non-core activities are specialist types of recreation which have lower demand. They include such activities as golfing, horse-riding, wall climbing and mountain biking. The provision of facilities for non-core activities should be guided by demographic trends and the availability of suitable sites. There are no planning standards and guidelines for the provision of non-core activities. Nonetheless, the provision of a wide variety of recreation facilities apart from the core activities is encouraged by the Government. Proposals for such developments should be assessed on their individual merits.
1.15.1 In determining the countability of recreation facilities towards meeting the stipulated standards, reference to the following criteria should be made:
1.15.2 It is common nowadays that recreation facilities (e.g. swimming pool, tennis court, table tennis court, etc.) are provided in private residential developments to cater for the need of their residents. These private recreation facilities should be taken into account in assessing the local needs of a district if they can meet the countability criteria (except criterion (a)) listed in para.1.15.1 above. The Leisure and Cultural Services Department should be consulted on this aspect. 1.15.3 The following are some common situations where recreation facilities may be provided but do not normally count towards the planning standard:
1.16.1 Three statutory zones are used for recreation facilities, namely "G/IC", "OU (Sports and Recreation Club)" and "REC" (see Table 9). The "G/IC" zoning is normally used for land where purpose-built recreation facilities are provided by the Government. The "OU (Sports and Recreation Club)" zoning is normally used for purpose-built recreation facilities developed by the private sector which are only accessible to members of the respective clubs. The "REC" zoning is used in the rural areas for land intended for the development of recreation facilities by the private sector. The forms of development should follow the requirements of the respective outline zoning plans. Table 9 : Statutory Zones for Recreation Facilities
1.16.2 For administrative plans, a more detailed zoning classification for different types of recreation facilities is applied having regard to the nature of the use, building intensity and location of the facilities. Recreation buildings and facilities provided by the Government should be designated "Government (Recreation)" ("G(Rec)"). Other recreation facilities provided can either be designated "Recreation (Category 1)" ("REC (1)") where the recreation facilities require higher building site coverage of up to 50% such as recreation clubs or theme parks; or "Recreation (Category 2)" ("REC (2)") where the recreation facilities require unique and extensive sites with much lower site coverage of below 10% such as golf courses, marinas, or sailing clubs. Table 10 shows the different zones normally used for recreation facilities on administrative plans. Table 10 : Non-statutory Zones for Recreation Facilities
1.16.3 The corresponding recreation zonings used on statutory and administrative town plans are summarised in Table 11 below : Table 11 : Corresponding Statutory and Non-statutory Recreation Zones
1.16.4 It should be noted that the statutory zonings indicated in Tables 9 and 11 are for general reference only. The most appropriate zonings for recreational developments should be determined having regard to specific planning circumstances. 1.16.5 Where the planning intention is for conservation of the countryside and coastal areas, it may not be appropriate to zone for recreation use. Statutory zones for conservation purpose restrict development and, generally, exclude recreation facilities. Further information on conservation zones should be referred to Chapter 10 of the HKPSG on 'Conservation'.
1.17.1 Generally, good quality sites are required for recreation facilities. 1.17.2 Wherever possible, sites for recreation facilities should be located close to major transport routes and interchanges as good access encourages use of the facilities. This is particularly important where a wide catchment area is served. Special arrangement may be necessary to ensure easy access for special groups such as the disabled. 1.17.3 At the initial site identification stage, environmental issues should be considered as the environmental quality of a site, such as the air and noise aspects, can affect its suitability for recreation use. Conversely, the proposed recreation use may create environmental problems for adjoining developments, for example, outdoor stadia and ball courts close to housing. Reference should be made to Chapter 9 of the HKPSG on 'Environment' for further details on the environmental requirements. 1.17.4 Special consideration should be given to facilities which attract large crowd of spectators such as stadia. Traffic impact assessment may have to be undertaken at the planning stage for this type of development. 1.17.5 For development of recreation facilities within coastal areas, different impact studies on environment, traffic, and probably ecology may be required to establish the suitability of a site for the intended use. Where the recreation facility requires waterfront access, a minimum water depth and special facilities such as piers, pontoons and sea walls, may be required. The facility may also require hardstandings for boat storage, workshops and slipways which, in turn, may require good road access and parking for vehicles.
1.18.1 With an ageing population and an increasing trend of elderly participation in recreation activities, there is a growing need in HK to provide exercise facilities for the aged. Indoor facilities such as badminton courts, table tennis rooms, multi-purpose activity rooms, and fitness rooms should be designed to cater for users of all ages including the elderly. Appropriate outdoor facilities such as fitness stations with equipment suitable for use by elderly, Tai Chi areas with rain shelter and seating, etc. should be incorporated in gardens and parks where they make frequent visits. 1.18.2 In planning exercise facilities for the elderly, the following integrated design principles should be considered:
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