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Pedestrians cross the road against a red signal in Mong Kok on August 14. The city’s police force has said it will step up enforcement action against unsafe behaviour by pedestrians and drivers after a series of accidents. Photo: Yik Yeung-man
Opinion
Oren Tatcher
Oren Tatcher

Jaywalking crackdown is not enough to make Hong Kong a safer city for all

  • The design practices behind Hong Kong’s infrastructure lead to pedestrians yielding to vehicles despite pro-pedestrian trends taking hold around the world
  • Compromises such as lower speeds and more vigilance in busy pedestrian areas will mean safety and pedestrian convenience are no longer mutually exclusive
Noting an uptick in fatal traffic accidents, the Hong Kong Police Force announced earlier this month they would step up enforcement against jaywalking and poor driving. “We found that many accidents involved pedestrians not paying full attention when crossing the road, such as using phones, or not using crossing facilities properly,” Senior Inspector Chan Ho-man of the force’s road safety unit said.

While acknowledging that “illegal driving behaviour is another major reason for serious and fatal traffic accidents”, Chan’s critique focused on pedestrians. The police have warned of action against pedestrian conduct such as ignoring red lights, climbing road fences and not using crossing facilities such as footbridges or tunnels.

Chan might be interested to know that studies have shown phone use by drivers, not pedestrians, is much more likely to cause accidents.

He might also not be aware that our own Transport Department’s website warns drivers that they “have the legal and moral responsibility to take proper care to avoid accidents with pedestrians at all times and places – even if the pedestrians are jaywalking”.

In Hong Kong and elsewhere, jaywalking is illegal and potentially dangerous. That is why it’s rarely an activity pedestrians choose to engage in if they have better options.

Without justifying such behaviour, it is useful to try to understand why jaywalking is prevalent on the streets of Hong Kong and what can be done about it besides police enforcement.
Pedestrians view their smartphones as they walk cross an intersection in Causeway Bay. Photo: Fung Chang

There is something in transport planning called “desire lines”: the route people prefer to take between their points of origin and destination. In its simplest form, it is a straight line connecting the two points, as best exemplified by paths beaten over generations across a village green.

In cities, desire lines are far more complex and can involve travel on public transport, for example, in addition to walking. But the essence is the same – all things being equal, people prefer their journeys to be as short, direct and unencumbered as possible.

Unfortunately, the design of transport infrastructure in Hong Kong has long given pedestrians’ desire lines a low priority. The Transport Department’s design practices have generally followed mid-20th century global trends, based on the premise that a complete separation of motor vehicles and pedestrians is beneficial to both. With minimum commingling, people and vehicles will move more quickly, efficiently and safely.

But because vehicles are bigger, heavier and less manoeuvrable than people, the practical implication of these policies in most cases has been that pedestrians had to yield to vehicles. They are diverted to limited road crossings, footbridges and tunnels, often extending their journeys and adding unwelcome exertion. In other words, pedestrians were asked to sacrifice their desire lines in the name of improved vehicular flows.

That approach has since been widely repudiated. In cities around the world, pedestrians are prioritised over private vehicles, reflecting an understanding that the way to fight traffic congestion, rising emissions and urban sprawl is by encouraging non-motorised mobility.

Car lanes have been removed in favour of wider sidewalks, bike lanes and bus lanes. Traffic-calming measures including speed bumps and tight road geometry were implemented in busy pedestrian areas such as business districts, shopping centres and near schools.

A cycle path is added to a Milan street in May 2020. Cities around the world are beginning to realise that the way to fight traffic congestion, rising emissions and urban sprawl is by encouraging non-motorised mobility. Photo: LaPresse via ZUMA

Alas, Hong Kong is well behind these trends. New roads are still designed for optimal speed and vehicular flows, and new developments are built around the principle of the strict separation of vehicles and pedestrians. In older urban areas, the government has doubled down on the policy of fencing off sidewalks, corralling pedestrians and funnelling them towards proper crossing facilities.

In short, despite an official policy to improve walkability, the actual design approach of our mobility infrastructure continues to deprive pedestrians of their desire lines.

The prevalence in jaywalking in Hong Kong can be understood as people acting to restore their desire lines when increasingly confronted with unreasonable detours, long waits at crossing signals or challenging level changes on hot summer days. You can fight jaywalking with strict enforcement and hefty fines, but the long-term solution must also address the underlying causes.
Not doing so could be perilous. With new cars hitting the road each day, prioritising vehicular flows above everything else will take Hong Kong down an unsustainable path of an increasingly restricted and degraded pedestrian environment.
A pedestrian walks past metal railings next to tram tracks in Hong Kong on August 21, 2020. Hong Kong’s road design is built around the principle of the strict separation of vehicles and pedestrians. Photo: Bloomberg

Global experience shows that this could trigger a vicious cycle where people are more inclined to drive because walking is so uncomfortable, leading to further congestion and pollution. It could also drive even more frustrated pedestrians to engage in risky jaywalking.

Paradoxically, the rapid growth in private car ownership in Hong Kong – which has nearly doubled in the last 20 years – could help. Government statistics show that most car owners still walk and use the city’s network of cheap and efficient public transport for their daily commutes. This means that many drivers currently on the streets of Hong Kong are likely to be attuned to the needs of their fellow pedestrians and accept compromises such as lower speeds and the need for greater vigilance in busy pedestrian areas.

Once lower road speeds are accepted, safety and pedestrian convenience will cease to be a zero-sum game and a wide range of design possibilities will open up.

Let’s hope there are open minds in our government who see those possibilities and understand the need to go beyond enforcement. It is the shortest route to a sustainable and safe future for everyone moving around Hong Kong.

Oren Tatcher is an architect and planner who specialises in urban mobility. He is a member of the Hong Kong Institute of Urban Design

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