Managing Vibrant Streets: Street Performance Policy in Hong Kong

Street performance has the potential to greatly contribute to a city's livability, social atmosphere, cultural vibrancy, and local economy. By promoting spontaneous social interactions in public spaces, street performances can enhance a city's walkability and make its streets more vibrant and welcoming. The concept of "placemaking" has been recognized by the Hong Kong government as one of the objectives in its "Hong Kong 2030+" development strategy. This recognition acknowledges that streets are not just transportation routes but also play a crucial role in creating attractive, livable, and social environments.

While the Hong Kong government has shown commitment to promoting walking and active mobility through its "Walk-in-HK" initiative, most efforts have focused on physical infrastructure and street design. Public space management, including street performance, has received less attention and has been a low priority in policy-making. Hong Kong lacks a comprehensive street performance policy, and the current regulatory regime treats street performance mainly as a nuisance rather than seeking a balance between promotion and management of its negative impacts.

The introduction of pedestrianized streets by the Transport Department in the early 2000s led to conflicts between street performers, residents, shop owners, and pedestrians, particularly in places like Mong Kok. The existing regulatory rules and practices were inadequate in managing street performance, leading to the closure of Mong Kok's pedestrian precinct in 2014 by the Yau Tsim Mong District Council. This situation has hindered the expansion and development of pedestrian-friendly facilities in Hong Kong.

The objective of this research was to engage with key stakeholders and understand their priorities and concerns regarding street performance management. The aim was to assess the acceptability and feasibility of different policy options and provide locally suitable policy recommendations. The research was conducted in two phases. In the first phase, qualitative interviews were conducted with 29 key stakeholders, including street performers, community groups, district councillors, representatives from the business sector (property, retail, and hotels), and relevant government departments. A Conflict/Cooperation, Legitimacy, Interest, and Power (CLIP) analysis was carried out to understand the dynamics of relationships among stakeholders and inform policy recommendations.

The analysis revealed that despite conflicts, certain stakeholder groups had potentially aligned interests. Many street performers were willing to accept greater regulation if it legitimized their activities in specific locations, provided clearer guidelines for law enforcement encounters, and reduced conflicts with other stakeholders, including fellow performers. Representatives from the business sector recognized the potential benefits of street performance for business and tourism, as it could attract more visitors and enhance urban livability if the intensity and quality of street performances were effectively managed. However, no single stakeholder possessed enough power, interest, or legitimacy to bring about policy changes to realize these benefits. This was due to the fragmented responsibility for street performance among various government departments, institutional constraints, prioritization of other issues, concerns about public perception, and limited channels for stakeholder participation. Among all stakeholders, street performers were found to be particularly vulnerable and marginalized.

Therefore, cohesive leadership from the government is necessary to implement the required policy changes. Deliberate and inclusive engagement with street performers as a group is also essential.