Public Housing Improvement in Quality of Life

Transcription

1 Liberal Studies Teaching Kit for Senior Secondary Curriculum Hong Kong Today Public Housing Improvement in Quality of Life [Teacher notes] Organizer Sponsor Research Team

2 Contents Preamble Teaching plan i Lesson 1: Public Housing Improvement in Quality of Life 1.1 Public housing to provide affordable living 1.2 Public housing to meet population explosion History of the 1950s Lives of people in the 1950s The Hong Kong Housing Authority The Hong Kong Housing Society 1.3 Public Housing to meet changing society Functional Approach Mark I Residential Block since 1954 Mark II Residential Block since the late 1950s Community Approach Mark III Residential Block since the early 1960s Mark IV Residential Block since the early 1960s Mark V Residential Block since the late 1960s Mark VI Residential Block since the late 1960s Twin-tower Residential Block in the 1970s 1.4 The New Generation of Public Housing In Hong Kong Design for Quality Linear Block since the 1980s Harmony style since the 1990s Concord style since the 1990s Humanistic, Functional and Cost-effective Design Site-specific Style since the 2000s Summary, Key words and Further Reading 21 Class activity: Debate on Housing Issues in Hong Kong 23 Appendix: Public Housing in Singapore as an Example 26 Disclaimer Create Hong Kong of the Government of the Hong Kong Special Administrative Region provides funding support to the project only, and does not otherwise take part in the project. Any opinions, findings, conclusions or recommendations expressed in these materials/events (or by members of the project team) do not reflect the views of the Government of the Hong Kong Special Administrative Region Hong Kong Institute of Architects

3 Topic 02 Public Housing Improvement in Quality of Life Major teaching areas Liberal Studies: Module 2 Hong Kong Today Theme 1: Quality of life Theme 2: Rule of law and socio-political participation Related teaching areas Liberal Studies: Module 6 Energy Technology and Environment Theme 2: The environment and sustainable development Interdisciplinary teaching areas Design and Applied Technology: Strand 1 Design and Innovation Strand 3 Value and Impact Learning objectives To understand the need for public housing in Hong Kong To understand the development of public housing block design as it relates to social needs and economic growth To learn the Government s public housing policy To evaluate public housing conditions in Hong Kong Teaching plan Lesson Lesson 1 History of Public Housing in Hong Kong Class activity Debate on public housing amongst stakeholders Contents 1.1 Principles of public housing 1.2 Needs for public housing in Hong Kong 1.3 Building design of a public residential block 1.4 The new generation of public housing design Discuss various concerns related to public housing through role play Summarize views raised by different parties during role play as conclusion of the topic i

4 Lesson 1 Public Housing Improvement in Quality of Life 01

5 Lesson 1 Public Housing Improvement in Quality of Life 1.1 Public housing to provide affordable living Public housing provides affordable living places for the lower to middle income portion of the population. In Hong Kong. it is mostly constructed by the Hong Kong Housing Authority for non-profit purposes and is rented at a subsidized price. Hong Kong s public housing programme dates back to the 1950s. It has been addressing the housing needs of low-income families for over half a century and has contributed to the city s social cohesion and stability. Hong Kong Housing Authority q Wah Fu Estate, a public housing estate in Hong Kong, built in the 1970s. 02

6 1.2 Public housing to meet population explosion What happened in the 1940s and 1950s? 1945 WWII ended and there was a population explosion Chinese Civil War broke out. Thousands of refugees fled to Hong Kong. The population was around 0.6 million. By 1951 The population had grown to over 2 million Squatter fire in Shek Kip Mei made 53,000 people homeless in one night How did people live in the 1950s? Since most of the population was poor and there was not sufficient space for each family, some residents were forced to lived at squatters. t Cha Kwo Ling Village - a squatter settlement Raymond Wong [Discussion] 1 What did the Government do to help these homeless and lower income people? A squatter settlement is a kind of informal settlement that forms due to the lack of housing units. Living conditions in these settlements are poor, unhygienic and cramped. Amenities and facilities are not guaranteed. Homes are constructed by occupants rather than professionals, using steel sheets, bricks, wood, and whatever inexpensive materials occupants can find. Teaching Tips More information about vernacular architecture in Hong Kong can be found under Liberal Studies topic 01: Vernacular Architecture. Suggested Answers The Government immediately built two-storey bungalows on the site to provide temporary shelter. In 1954, projects for multi-storey resettlement construction were set up. Eight six-storey Mark I resettlement blocks were completed in Shek Kip Mei as the first generation of public housing in Hong Kong. The resettlement block initially was a solution to the immediate need for shelter after the Shek Kip Mei fire. In the 1960s, it also provided temporary housing to accommodate those who were not immediately eligible for permanent public housing. A long-term public housing programme was also set up to provide lower and middle income families low-cost housing in self-contained flats. The low-cost housing programme was formally implemented to provide rental public housing in

7 1.2.3 The Hong Kong Housing Authority Beginning in 1954, two government organizations the Resettlement Department and the former Housing Authority worked together on public housing projects for nearly 20 years. In 1973, a new Housing Authority and an unified Housing Department were established to replace the earlier fragmented groups under a new Housing Ordinance. The Housing Department become the executive arm of the Hong Kong Housing Authority, which is a statutory organisation tasked with developing and implementing a public housing programme to help the Government achieve its policy objectives for public housing. Public housing sites are government land. The Housing Authority is exempted from the statutory process of the Buildings Ordinance for the execution of public housing projects. Vision To help all families in need to gain access to adequate and affordable housing Mission To provide affordable quality housing, management, maintenance and other housing related services in a proactive and caring manner To utilise public resources on a cost-effective and rational base To execute housing policies as a competent, dedicated and performance-oriented team (Source: Housing Authority & Fifty Years of Public Housing in Hong Kong, 2003) The Hong Kong Housing Society The Hong Kong Housing Society is a non-government and non-profit housing organization established in 1948 and incorporated by Hong Kong Ordinance Chapter 1059 in The Housing Society provides complementary housing through a number of its own innovative schemes. As a partner of the Government, the Housing Society builds self-contained homes for the people in need at non-prohibitive rates. Vision To serve the needs of the Hong Kong community in housing and related services To put customer, quality, talent and prudence as the core values Mission To provide and innovate a world-class housing solution with leadership in quality, value for money and management (Source: Hong Kong Housing Society) Teaching Tips Public housing estates built by the Housing Society can be found in the following: Prosperous Garden in Liberal Studies topic 05: Local Cultural District. Verbena Height in Science topic 8: Video: Urban Heat Island p Verbana Height in Cheung Kwan O is a public housing estate built by the Housing Society. 04

8 1.3 Public Housing to meet changing society From the 1950s to 1980s, there were generations of building designs for resettlement and rental residential blocks: Mark I to Mark VI, twin tower, slab block, cruciform and H block. Starting from the 1980s, rental residential blocks were built in the trident Harmony and Concord styles. Building design was further improved to provide sustainable, healthy and safe living environments in Functional Approach Mark I Residential Block since 1954 Architectural layout H-shaped residential blocks 5-7 storeys m 2 In the following eight years, 21 more sevenstorey blocks were built Example: Mei Ho House, Shek Kip Mei (currently renovated into a youth hostel) p H-shaped Mark I residential block model Shower areas Living conditions No lift service accessed by staircases on two sides only No individual toilet, bathrooms and kitchen public shower area, toilets in the bridge between two wings Community facility Rooftop used as school p Mark I Residential Block in Wong Tai Sin, with rooftop school Water outlets Stairs Toilets Common washing areas Stairs Water outlets Shower areas p Typical floor plan of Mark I residential block. Bridge in the centre in Mark I residential block was used as a common space for shower and washing. There were no individual kitchens or shower areas. Hong Kong Housing Authority 05

9 2 3 1 Narrow corridors were often used as cooking spaces 2 Domestic unit accommodated a family of 5. There were no partitions, and living conditions were cramped and inconvenient. The resettlement blocks provided immediate shelter to the fire victims in Shek Kip Mei. Hong Kong Housing Authority 3 North Point Estate (demolished) was completed in It was the first low-cost public housing estate built by the former Housing Authority. It was an attempt to translate the best of contemporary London urban housing practice to Hong Kong at the time. It aimed at providing affordable rental apartments in better living conditions than the typical residential building designs of the time. Benjwong - Wikipedia user 1 06

10 Mark II Residential Block since the late 1950s Architectural layout Residential blocks resemble the character 日 Improved from Mark I residential block Additional vertical and horizontal circulation spaces Example: Wang Tau Hom Estate, Wong Tai Sin (demolished) Living conditions Larger common spaces for toilet, shower areas and washing areas on the bridge Better natural ventilation from the use of permeable wall tiles Some flats had individual toilets and water supply Community facility Rooftop used as school Retail facilities to meet the basic needs of living Limited garden space p Mark II residential blocks resemble the character 日 Wang Tau Hom Estate, Wong Tai Sin 07

11 p Typical floor plan of Mark II residential block. Circulation was improved and the number of public shower areas and toilets was increased Corridor Living, dining & bedroom Cooking along access balcony p Domestic unit was similar to Mark I residential block. There were no partitions within the units, and bunk beds were very common. There was no private kitchen and cooking was done in the corridor. p Permeable wall tiles were used for better natural ventilation and lighting. 08

12 1.3.2 Community Approach Mark III Residential Block since the early 1960s Architectural layout Slab/ L-shaped residential block 7 10 storeys Example: Tsz Wan Shan, Wong Tai Sin (demolished) Living conditions Living quality was gradually improved after the implementation of the Government Low-cost Housing Programme. Single room with no partitions Balconies and individual power supplies were added Public shower areas, toilets and kitchens in the extension were slowly replaced by individual kitchen and shower areas within the flats Community facility Courtyards and parks between blocks to provide communal space Outdoor furniture, playground equipment were made of concrete and wood Mark IV Residential Block since the early 1960s Architectural layout Slab/ E-shaped residential block storeys In 1965, public housing occupants reached 1,000,000. Example: Tsz Oi Estate and Tung Tau Estate Block 23, Wong Tai Sin (demolished) p Tsz Wan Shan, Wong Tai Sin Hong Kong Housing Authority Teaching Tips More information about rooftop schools in Hong Kong can be found under Design and Applied Technology topic 07: History of School Design in Hong Kong. t Tung Tau Estate Block 23, Wong Tai Sin Hong Kong Housing Authority q Typical domestic unit of public housing residential block in the 1960s-1970s. There was a kitchen and shower area in each unit, with additional balcony space Living, dining & bedroom Living conditions Lifts were installed but they did not stop on each floor Individual toilet, shower areas and kitchen Individual water and power supply Kitchen Community facility Sports facility were added within the estates Schools were built in the annex block attached to the main residential block Shower area Balcony 09

13 Mark V Resettlement Block since the late 1960s Architectural layout Slab-shaped residential block Similar to Mark IV design Linked 1 3 blocks together Example: Sau Mau Ping (I) Estate (demolished) Mark VI Residential Block since the late 1960s Architectural layout Similar to the earlier slab block arrangement T-shaped residential block Last construction of resettlement/temporary residential blocks (Shek Lei Estate block 10 and 11 areas now the last standing temporary residential block from this era) Living conditions Overall amenities in the public housing estate were improved Lifts located in the centre with staircases at the ends Occupants were not allowed to modify any of the building design t Sau Mau Ping (I) Estate Hong Kong Housing Authority t Pak Tin Estate, Shek Kip Mei Hong Kong Housing Authority 10

14 Twin-tower Residential Block in the 1970s Architectural layout 8-shaped residential block Lower and higher towers were linked together Flat-facing-each-other arrangement intended to reduce crime In 1981, public housing occupants reached 2,000,000 Example: Wah Fu Estate, Hong Kong Island South Living conditions Lightwells were used to enhance ventilation The design was not widely adopted Not suitable for large families Community facility Self-contained public estate with commercial, educational, recreational and transportation facilities Imported proprietary playground equipment and street furniture were used. p Lower and higher two-tower residential block model Courtyard Arcade Bus stop p Aerial view of Wah Fu Estate Wah Fu Estate was completed in The buildings were built in slab-shaped and twin-tower residential block design. It was the first public housing estate promoting self-contained community in Hong Kong It contained a shopping arcade, schools, bus terminals and other amenities. p Typical floor plan of twin-tower residential blocks 11

15 [Discussion] 1 What were the historical events, or social and economic changes that triggered the evolution of public housing since 1954? Suggested Answers The architectural design of public housing blocks has been changing since 1954 because the social need for public housing was different. In the 1950s, the immediate need was to provide shelter for Shek Kip Mei fire victims. Living quality in the residential blocks was of a lower priority. Economy in Hong Kong gradually improved. In the 1970s, local economy flourished and society began to demand better, healthier and safer living condition. The older designs of public housing blocks are therefore superseded. In 1988, a Comprehensive Redevelopment Programme (CRP) was launched to gradually demolish and redevelop 566 blocks built before The New Generation of Public Housing in Hong Kong Design for Quality The single-room concept of the past three decades was replaced by multi-room residential units. Public housing design has become more site-specific since the late 1980s, with a focus on providing natural lighting and cross-ventilation. Linear Block since the 1980s Linear block, was a common type of public housing blocks in the 1980s. Architectural layout Site-adaptive design Single-loaded corridor Standard unit sizes Multi-rooms in each domestic unit Self-contained Living conditions Individual balcony, toilet and kitchen Community facility Estate open spaces and extensive external works Large commercial centres in a more market-oriented approach Teaching Tips More information about environmental design in Hong Kong can be found under: Design and Applied Technology Topic 05 : VIDEO: Sustainable Architecture. p Some of the arrangements for 2 and 3 Linear blocks 12

16 Single-loaded corridor A single-loaded corridor is an open corridor which provides one-side access to rooms and leaves another side open for natural ventilation and sunlight p Trident style, three identical arms from one central lift core Bedroom Bathroom Trident Block in the 1980s Double-loaded corridor access and central circulation access gave rise to the Trident I, II, III and IV building types in the 1980s. Efficiency of site usage is increased. Flats of different blocks are no longer directly facing each other and give higher privacy to the occupants. t Typical flat design in Trident block There are no fixed partitions. Occupants were free to create their own spatial arrangements. Larger living areas than the previous Mark I to Mark VI. Kitchen Living & dining room 13

17 Harmony blocks in the 1990s Architectural characteristics Standardized design Prefabricated building elements include staircases, kitchens, and bathrooms Harmony Style Unit area is larger and there are fewer flats fit on each floor Standard unit sizes for 1-2 person, 3-4 person, 4-5 person and 5-7 person families Living conditions Apart from standard service rooms, no partitions are fixed so occupants can arrange rooms according to their needs Site-specific and user-oriented design included an annex block attached to Harmony style block with universal design flats for elderly and physically impaired people and harmony rural type for suburban locations Community facility Provision of community facilities according to the Hong Kong Planning Standard and Guidelines and the demography of individual estates Different artwork, colour schemes and features to enhance the sense of neighbourhood Bathroom Living & dining room t Harmony style, four identical arms from one central lift core Kitchen Bedroom t Typical flat design in Harmony block 14

18 p Kai Tai Court, old cruciform residential blocks p Long Ping Estate, trident residential blocks 15

19 Concord blocks in the 1990s Architectural layout Zig-zag form or cruciform shape Initially built for the Home Ownership Scheme (HOS), but due to the cessation of that scheme in 2003, some residential blocks were made available for public housing Account for environment geographical setting and orientation Living conditions Unit area is larger than that in harmony style. p Concord residential block, Wo Ming Court Noise from traffic p Typical Concord residential block floor plan p The configuration of Concord residential block to allow buffer from noise source due to unit orientation Dining room Bathroom En suite bathroom Master bedroom Kitchen Bedroom p Living room Typical Concord residential three-bedroom flat 16

20 1.4.2 Humanistic, Functional and Cost-effective Design Site-specific Style since the 2000s In the first decade of the 21 st century, the Hong Kong Housing Authority developed a new design strategy, adopting a modular flat and site-specific design for public customization in public rental housing to assure quality, cost effectiveness, consistency and suitability in core standards. Principles include making the best use of valuable land resources, substantive improvements to the built environment, buildability, cost effectiveness, user-friendliness, adopting findings from Resident Surveys. Example: Redevelopment of Upper and Lower Ngau Tau Kok Estate (Source: Hong Kong Housing Authority) p 1-2 person flat unit module p 1-bedroom flat unit module p 2-3 person flat unit module p 2-bedroom flat unit module 17

21 Upper Ngau Tau Kok Estate before demolition Amoy Garden p Lower Ngau Tau Kok Estate before demolition Living condition improvements: Redevelopment of Upper and Lower Ngau Tau Kok Estate Teaching Tips More information about sustainability in the redevelopment of Upper and Lower Ngau Tau Kok Estate can be found under Science Topic 07 VIDEO: Energy-saving Approaches in Architecture ; and Topic 08 : VIDEO: Urban Heat Island ; also under Design and Technology Topic 03 VIDEO: Universal Design. 18

22 p Sustainable design: Micro-climate studies for the redevelopment of Upper Ngau Tau Kok Estate p Efficient construction: Modular Flat Design for Upper Ngau Tau Kok Estate 19

23 [Discussion] 1 Please state some pros and cons of this Modular Flat Design. Suggested Answers Pros Optimizing flat size and service area ratios for better living spaces and higher flat production. Standardizing dimensions and configurations for healthy living, comfort, flexibility and micro climate controls in ventilation, lighting and solar heat gains. Refining flat layouts and details, reinforcing universal design for better livability and convenience. Enhancing plumbing designs, drainage and electrical installations for healthy living and easy maintenance. Standardizing the design of structure and fabric components to enhance buildability and achieve better economies of scale. Focusing on the safety, privacy and daily requirements of tenants. Optimizing site development potential with site-specific design. Assuring quality, cost-effectiveness and consistency. Cons Not gearing personal needs. Lacking identity for different estates/ blocks/ flats. Restrict the layout to take full advantage of the site. Making city monotonous. Limited variety for different family types. 1 2 The redeveloped Upper Ngau Tau Kok Estate: 1 Overall master planning 2 Outdoor open space 3 Universal design of flats for elderly 3 20

24 Summary The Housing Authority aims at providing affordable and pleasant housing to lower and middle income people. The idea of providing public housing started in the 1950s due to a population boom. Over the past decades, living quality has been gradually improved in public housing through evolving design for residential blocks. Key words Hong Kong Housing Authority Hong Kong Housing Society Squatter settlement Public housing estate Resettlement residential block Sustainable design Universal design Further reading 1. Website of the Hong Kong Housing Authority 2. Website of Hong Kong Housing Society 3. Website of the Hong Kong Planning and Infrastructure Exhibition Gallery 4. Website of Housing & Development Board, Singapore Government 5. Yeung, Yue-man, and Timothy K.Y. Wong. Fifty Years of Public Housing in Hong Kong. Hong Kong: Chinese UP for the Hong Kong Housing Authority, Hong Kong Institute of Asia-Pacific Studies, Organizer Sponsor Research Team 21

25 Class Activity: Debate on Housing Issues in Hong Kong 22

26 Class Activity: Debate on Housing Issues in Hong Kong Suggested flow Assign students to role play as follow. Referring to the government policy on public housing, three groups of stakeholders of housing issue in Hong Kong will explain their rationale and opinions on the construction of public housing and justify their suggestions. The rest of the class will act as the jury, judging and evaluating the debate on the housing policy. The jury will comment on the points of view of different stakeholders and give suggestions on public housing policy after reviewing the pros and cons proposed by different stakeholders. Divide the class into four groups: Representatives of the Housing Authority (3 students) one representing an architect two representing policy makers Tenants of the PRH flats (3 students) one representing a low-income retired person one representing a family with increasing household income one representing a family that wish to own their home Applicants awaiting for the PRH flat allocation (3 students) one representing a low-income retired person living in a cage home one representing a family of 5 living in a sub-divided unit one representing a person who wants to own his/her own flat but his/her income slightly exceeds the prescribed limit for PRH flat Jury (the rest of the class) commenting on their points of view from the three groups of stakeholders suggesting what public housing policy should be made q Old Ngau Tau Kok public housing estate Teaching Tips Teachers should encourage students to support their arguments with current issues in Hong Kong. Additional information can be gathered from journals, news, documentary and other reliable sources. In the Appendix, there is an introductory session on public housing policy in Singapore. 23

27 A Profile of Hong Kong s Public Housing Policy In 1961, the Government Low-Cost Housing Programme was implemented. In 1976, the Home Ownership Scheme (HOS) was introduced to encourage lower-income families and Public Rental Housing (PRH) tenants to acquire their own homes. In 1978, the Private Sector Participation Scheme (PSPS) was introduced to speed up the building process for HOS. In 1987, the Long Term Housing Strategy (LTHS) was introduced for the development of housing until 2001, aiming at increasing private home ownership; satisfying and shortening the waiting list for PRH flats; and redeveloping resettlement estates and old-style housing estates. In 1988, the Home Purchase Loan Scheme was launched to assist eligible families in acquiring home ownership in the private market. In 1996, the Policy on Safeguarding Rational Allocation of Public Housing Resources was introduced, whereby well-off tenants would be required to pay market rents or even vacate their PRH flats. In 1998, the Tenants Purchase Scheme (TPS) was launched to allow tenants to purchase the PRH flat they were living in at a very affordable price. In 1999, the Buy or Rent Option was introduced to facilitate applicants on the PRH Waiting List to acquire early home ownership. In 2002, the Housing Authority announced that it would cease the production and sale of HOS and PSPS flats from 2003 onwards, and would terminate the TPS after the launch of the Phase 6 sale. Mission statement of the Hong Kong Housing Authority: To provide affordable quality housing, management, maintenance and other housing-related services in a proactive and caring manner To utilise public resources on a cost-effective and rational base To execute housing policies as a competent, dedicated and performance-oriented team In 2003, the Home Assistance Load Scheme was launched to replace the Home Purchase Load Scheme of the Housing Authority and the Home Starter Load Scheme of the Housing Society. In 2004, the Home Assistance Loan Scheme was terminated. In 2007, a new rent adjustment mechanism for PRH was established based on changes in the household income of tenants. Shek Kip Mei redevelopment project was the first public housing estate that adopted Universal Design for elderly tenants. Environmental sustainability is also beginning to be addressed. (Source: Hong Kong Housing Authority website) 24

28 My role in making public housing policy My role is My main concern on housing policy is Universal design To be completed by students Elderly Environment Barrier-free Community Sustainable Design Accessibility My comments on different roles making public housing policy Role Points of view Comments Representatives of the Housing Authority Tenants of the PRH flats Transportation To be completed by students Applicants awaiting for the PRH flat allocation Jury 25

29 Appendix: Public Housing in Singapore as an Example Public Housing in Singapore The Housing & Development Board (HDB) was set up on 1 February 1960, during a housing crisis. At that time, many were living in unhygienic slums and crowded squatter settlements. Only 9 percent of Singaporeans lived in government flats. Taking over from its predecessor, the Singapore Improvement Trust, HDB was tasked with solving the nation s housing crisis. HDB built 21,000 flats in less than three years. By 1965, it had built 54,000 flats and within 10 years of its formation the board had successfully resolved the housing problem. Today, about 82 percent of Singaporeans live in HDB flats. Singapore s public-housing policy is based on three important fundamentals: Firstly, the concept of a sole agency in charge of public housing enabled more effective resource planning and allocation. This concept made it possible for HDB to secure land, raw materials and manpower for large-scale construction to optimize results and achieve economies of scale. t Punggol Public Housing Estate, Singapore Secondly, a holistic approach to housing was adopted, from planning and design to land assembly and construction. The overall housing policy was viewed as a comprehensive strategy through allocation, management and maintenance. Lastly, strong government support in the form of political and financial commitment and legislation helped put the early public housing programme on the right track to housing the nation. (Source: Housing & Development Board, 2012) [External reference] Housing & Development Board, Singapore Public housing history and typology in Singapore 26