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SUSTAINABLE TRANSPORT IN HONG KONG: DIRECTIONS AND OPPORTUNITIES 7. The POAS provides an opportunity to align policy and implementation in order to move towards a more sustainable transport system for Hong Kong, although early signs indicated that sustainable development was not a goal of the architects of the new system. However, subsequent changes in the configuration of several portfolios, particularly the amalgamation of the Environment portfolio with Transport and Works, are more positive. 236 7.3 Current decision-making structure Several policy bureaus and departments have responsibilities relating to transport planning and the execution of transport decisions in Hong Kong. The decision-making system is vertically organized with relatively weak horizontal links, resulting in a disjointed process of policy formulation that gives exceptional authority to transport officials over their peers in other bureaus. 237 The system does not appear to be sufficiently integrated so that there is a continuous and conscious learning and feedback loop that is rigorous and informative. Those at the highest level of the administrative system have not shown an inclination to question the basis for specific policies, enabling certain biases to continue to dominate decisions. Elected bodies play an important role in stopping decisions at the final stages of implementation when they are blatantly problematic, but in a more effective system, these issues would be picked up much earlier. Transport Bureau, Transport Department, and Highways Department At the core of the decision-making structure is the Transport Bureau (TB), which is charged with the responsibility to "provide a safe, efficient, reliable, and environmentally friendly transport system, which meets the economic, social and recreational needs of the community, and is capable of supporting sustainability and the future development of Hong Kong." 238 The TB's main responsibilities are to formulate policies on: • Development of Hong Kong's transport infrastructure; • Provision of transport services; • Management of traffic; and • Introduction of environmental improvement measures in transport-related areas. 239 The Transport Department (TD) and Highways Department (HyD) provide support for the work of the TB. The various areas for which the TD and HyD are responsible are listed below. Transport Department (TD) • Implement policies on public transport development; • Franchising and regulation; • Assist in the formulation of infrastructure development programs; • Plan and implement traffic management, road improvement, and pedestrian schemes; and • Manage tunnels, bridges, parking meters, and government car parks. Highways Department (HyD) • Expand and improve road network; • Provide technical support for the planning, design and construction, and maintenance of roads; and • Implement rail development decisions Source: Transport Bureau (2001), Environmental Report of the Transport Bureau, Transport Department, and Highways Department 2000-01, Hong Kong: HKSAR Government. 74 236 The HKSAR government moved a motion debate in the Legislative Council on May 29, 2001 to seek legislative support for the POAS and at the same time announced a different configuration of several portfolios in response to legislators' demands. 237 Although this issue is beyond the scope of this chapter, it would be useful to trace the reasons why transport planning has become so dominant within Hong Kong's civil service. 238 HKSAR Government (2001), "Policy Objectives," 2001 Policy Address, Hong Kong, Vol.2, Sec.31. 239 Transport Bureau (2001), Environmental Report of the Transport Bureau, Transport Department, and Highways Department 2000-01, Hong Kong: HKSAR Government.
Chapter 7: The Dynamics of Decision-making in Hong Kong The TB and the TD are therefore the primary transport planners. They put out policy documents and commission studies to assess long-term needs. In terms of current transport policy, the two most important studies are the Third Comprehensive Transport Study 1999 (CTS3) and the Second Railway Development Study 2000 (RDS2). The objective of CTS3 was to provide a framework for the development of an environmentally sustainable transport strategy up to 2016. The objective of RDS2 was to provide the framework for further expansion of Hong Kong's rail network up to 2016. The HyD has the responsibility for updating and implementing RDS2 and houses the Railway Development Office (RDO). The TB and TD also have a direct role within the organizations of the major public transport service providers. Representatives from the bureau and department are nominated to sit on the boards of the two rail companies and the franchise bus companies. Furthermore, it is the responsibility of the Secretary for Transport to provide a secretariat for the Transport Advisory Committee (TAC), which is the key advisory body to the HKSAR government on transport matters. As such, the secretariat has the ability to exert considerable influence on the committee. Works Bureau While the TB plans for Hong Kong's transport needs, it is the Works Bureau (WB) that plans, manages, and implements public works programs, which include all major infrastructure projects, to meet the requirements of client bureaus and departments. 240 The administration initially proposed that the POAS would combine the TB and the WB under a new Transport and Works Bureau, while the Environment portfolio would be combined with Health and Welfare. This decision indicated that decision-makers did not see sustainable development as a priority and regarded transport simply as the creation of hardware infrastructure: "Transport and Works both concern the development of physical infrastructure, for example, in respect of highways and railway systems. Placing the two portfolios together will facilitate closer planning and coordination." 241 However, as a result of pressure from local NGOs and legislators, the administration announced on May 29, 2002 that the Environment portfolio would instead be amalgamated with Transport and Works. 242 The Secretary of the new bureau will serve as a member of the Executive Council and will be supported by a non-political Permanent Secretary. Planning and Lands Bureau, Planning Department, and Territorial Development Department The Planning and Lands Bureau (PLB) also plays a role in transport planning and has the responsibility to "design and develop Hong Kong into an advanced international city through effective land use planning; adequate land supply; quality building and maintenance standards; and timely urban renewal." 243 The Planning Department (PD) provides support for the work of the PLB and has the mission to: • Formulate sustainable development strategies and plans; • Guide land use and development; • Facilitate sustainable development and re-development; and • Encourage community involvement and support in the planning process. 240 HKSAR Government (2001), "Policy Objectives," Vol.2, Sec.32. 241 Constitutional Affairs Bureau (2002), LegCo Paper, April 17, 2002. 242 See Footnote 236. 243 HKSAR Government (2001), "Policy ObjectivesVol.2, Sec.29. 75
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Civic Exchange and the Asia Foundat
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7. THE DYNAMICS OF DECISION-MAKING
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ROAD VERSUS RAIL - FINANCING MASS T
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Page 44 and 45: CLEANER & MORE EFFICIENT ROAD TRANS
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Page 100 and 101: AUTHORS Bill Barron (wbarron@hkucc.
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Page 108: Civic Exchange Room 601, Hoseinee H
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