Legislative Council of the Hong Kong Special Administrative Region

ISE05/14-15

Subject:

development, tree management, greening policy

As mentioned in our previous issue of Essentials entitled "Tree management", there are various components in a comprehensive tree management strategy, including tree maintenance, tree protection, development planning and tree planting, as well as supportive measures for tree management and preservation. This issue of Essentials gives a brief account of the tree management strategy in two Asian cities – Singapore and Tokyo to illustrate the concepts discussed in the previous Essentials on Tree management.

Tree management in Singapore

Singapore has adopted a proactive approach to tree management and is endeavouring to become a "City in a Garden". Under such a vision, Singapore aims to develop and enhance its greenery and create a city that is nestled in an environment of trees, flowers, parks and rich bio-diversity. The Parks and Trees Act (Cap.216), passed in 1975, forms the legal basis for tree management in Singapore. The National Parks Board ("NParks") under the Ministry of National Development is the lead agency for tree management and nature conservation.

Tree maintenance

Tree maintenance in Singapore comes under different agencies. NParks manages over 300 parks, four nature reserves and the extensive roadside greenery. These trees are looked after by internationally certified arborists. Under NParks' tree management programme, trees growing along major roads or areas with high human activity are inspected at least once every 12 months. The inspection details are recorded and entered into a database for future reference. Where necessary, crown reduction pruning is carried out to make the trees less vulnerable to strong winds.
According to the Parks and Trees Act, for trees on premises adjoining a street, railway or rapid transit system that are obstructing traffic or endangering life or property, the Commissioner of Parks and Recreation, who is the Deputy Chief Executive Officer of NParks, may serve an enforcement notice requiring the occupier of the premises to take such measures as the Commissioner thinks fit, including cutting down the tree. For trees on premises constituting an immediate threat to life or property, the Commissioner may take any necessary measures and recover all expenses incurred from the occupier of the premises.

Tree protection

Under the Heritage Trees Scheme introduced in 2001, anyone can nominate a tree as a Heritage Tree. All nominations sent to NParks will be recorded into a database. Nominated trees will then be inspected by NParks arborists and the list submitted to the Heritage Tree Panel^{1Legend symbol denoting Led by the Commissioner of Parks & Recreation, the Heritage Tree Panel comprises 11 members, with five including the chairman from NParks. Other members include a plant scientist and three professionals in arboriculture and landscaping. An official from the Urban Redevelopment Authority of Singapore also sits on the panel. The remaining two members are from the academic sector and People's Association chaired by Singapore Prime Minister.} for consideration. The Heritage Tree Panel will determine whether any of the nominated trees should be endorsed as Heritage Trees. As at November 2014, 224 trees are on the Heritage Tree Register.
In addition, under the Parks and Trees Act, mature trees in two gazetted Tree Conservation Areas in central and eastern Singapore are safeguarded against unnecessary felling. These provisions apply to both public and private land. It is an offence to cut, remove, or damage the protected trees without the approval of the Commissioner of Parks and Recreation. Any person guilty of the offence is liable to a fine.

Planning and tree planting

The Parks and Trees Act sets out a mandatory requirement of tree planting in any proposed land development. Moreover, the Urban Redevelopment Authority has since 2009 launched a programme to actively promote the provision of greenery within the private realm by encouraging developers to incorporate both ground greenery and skyrise greenery in the form of sky terraces and rooftop gardens.
Meanwhile, by keeping records over the years, NParks has identified tree species that are storm-vulnerable. Since 2003, it has carried out regular exercises under the Tree Replacement Programme to systematically replace storm-vulnerable trees with suitable trees.

Supportive measures

NParks set up the Centre for Urban Greenery and Ecology in 2007 as a national training institution to provide professional training programmes on horticulture and arboriculture for workers in the landscape industry. The Landscape Singapore Workforce Skills Qualifications System establishes national occupational standards for each landscape job function and maps out the skills progression pathways at each level.
NParks also promotes green awareness by involving the community in projects which enhance their lifestyle experiences in parks, promote the appreciation of greenery and nurture a culture of gardening. To introduce the City in a Garden vision, NParks launched an extensive public engagement exercise in August 2011 to encourage the community to contribute ideas to shape the City in a Garden. Over 8 000 ideas were generated and some of them have been incorporated into NParks's measures.

Tree management in Tokyo

Tokyo once had a vast open area with waterfront space and greenery that was cultivated in the Edo period. However, with the advancement of urbanization, water and greenery have been lost. From the last decade, the Tokyo Metropolitan Government ("TMG") has undertaken various measures to create and preserve greenery. The "Green Tokyo Plan" was formulated at the end of 2006 aiming to regenerate Tokyo's greenery. The goal to "restore Tokyo to a beautiful city surrounded by water and greenery" was also reiterated in the 10-Year Plan "Tokyo Vision 2020".

Tree maintenance

The Bureau of Construction under TMG manages Tokyo's parks and roadside greenery. It formulated the Tokyo Metropolitan Street Tree Management Regulations in 1954 to guide the management work of street trees. Under the Regulations, tree maintenance works such as insect prevention and pruning should be conducted regularly, and those dead or decayed trees should be removed as soon as possible. There are also detailed guidelines on maintenance procedures and standards specifications that contractors responsible for street tree maintenance are required to observe.
The local government system in Japan consists of two tiers: (a) prefectures and (b) special wards (ku)/municipalities,^{2Legend symbol denoting There are 23 special wards and 39 municipalities (26 cities, five towns and eight villages) in Tokyo. Tokyo's 23 special wards are, in principle, subject to the same regulations that apply to cities. TMG and individual wards and municipalities work on equal footing in performing their respective functions: the former handles broader administrative work such as water supply, sewerage services and fire-fighting, and the latter provide services closer to the everyday lives of local residents like welfare and education.} which cooperate in local administration with equal status. As such, tree ordinances are made by TMG (prefectural government) and governments of ku and municipalities in Tokyo. For example, the Shinjuku Green Ordinance requires the ward government to conduct tree surveys regularly and publish the findings. The Ordinance also stipulates that owners should be responsible for the well-being of trees on their premises and ensure that their trees are well maintained and safe.

Tree protection

In Japan, there is detailed legislation at both the national and local levels to offer statutory protection for heritage trees. The Law on Tree Preservation for Maintaining Scenic Beauty of Cities was enacted in 1962, under which local governments are empowered to designate valuable trees/group of trees for conservation. Another national law, the Urban Green Space Law was enacted in 1973 to allow local governments to designate "green space conservation districts" from the wider perspective of nature conservation.
At the local level, TMG enacted the Tokyo Metropolitan Nature Conservation Ordinance in 1972 to protect the natural environment in Tokyo. Under the Ordinance, trees located in areas zoned as "conservation areas" are protected. Details about the conservation of trees in individual wards and municipalities are stipulated in ordinances enacted by the respective wards and municipalities.

Planning and tree planting

The Tokyo Metropolitan Nature Conservation Ordinance was revised in 2009 to require developers to protect existing trees in their development sites. Developers are also required to submit green plans for development projects including land readjustment, redevelopment and integrated road development projects.
TMG also endeavours to plant and maintain abundant and diverse species of roadside trees to match the character of the region. Meanwhile, the Bureau of Construction has been implementing a plan for the period 2012-2020 to replace vulnerable trees with those which are more hardy and can withstand bad weather.

Supportive measures

Japan is a forerunner in Asia for developing arboriculture as a profession. Since the early 2000s, the landscape industry has developed the local standards and qualifications system for Japanese tree workers and arborists based on the international standards on arboriculture. Training courses at various levels are provided to help prepare Japanese arborists for international certification.
In the meantime, TMG has implemented projects to raise public awareness of greenery. For example, there is a project to set up turf ground in public elementary and junior high schools, as well as kindergartens, nursery schools and private schools to create greenery close to children. In addition, to encourage community participation, TMG has since 2008 implemented the "My Tree" project, under which members of the public are asked to give donations to plant roadside trees and contributions will be acknowledged by donor recognition plaques attached to the trees bearing the names of the donors, messages from the donors and the type of the trees.

Observations

Tree ordinances in Singapore and Tokyo provide a legal basis for their tree management strategies. They provide a clear delineation of responsibilities among different parties to ensure proper and effective tree management on both government and private land.
It is observed that both places are committed to minimizing public safety risks by conducting regular tree inspections and risk assessment exercises. Vulnerable trees are replaced with suitable trees to withstand bad weather. Meanwhile, both places have put preservation of trees under the wider perspective of greening and nature conservation. They are also more proactive and putting a greater emphasis on planning and development as well as public engagement in tree management.

Prepared by Yuki HUEN
Research Office
Information Services Division
Legislative Council Secretariat
11 February 2015

Endnotes:

Led by the Commissioner of Parks & Recreation, the Heritage Tree Panel comprises 11 members, with five including the chairman from NParks. Other members include a plant scientist and three professionals in arboriculture and landscaping. An official from the Urban Redevelopment Authority of Singapore also sits on the panel. The remaining two members are from the academic sector and People's Association chaired by Singapore Prime Minister.

There are 23 special wards and 39 municipalities (26 cities, five towns and eight villages) in Tokyo. Tokyo's 23 special wards are, in principle, subject to the same regulations that apply to cities. TMG and individual wards and municipalities work on equal footing in performing their respective functions: the former handles broader administrative work such as water supply, sewerage services and fire-fighting, and the latter provide services closer to the everyday lives of local residents like welfare and education.

References:

1.	Attorney-General's Chambers, Singapore. (2014) Parks and Trees Act (Cap.216).
2.	Bureau of Construction, Tokyo Metropolitan Government. (2014) Tokyo Metropolitan Street Tree Management Regulations.
3.	Bureau of Environment, Tokyo Metropolitan Government. (2014) Tokyo Metropolitan Nature Conservation Ordinance.
4.	Centre for Urban Greenery and Ecology. (2014) Available from http://www.cuge.com.sg/About-Us[Accessed February 2015].
5.	e-Government, Japan. (2014a) Law on Tree Preservation for Maintaining Scenic Beauty of Cities.
6.	e-Government, Japan. (2014b) Urban Green Space Law.
7.	Ministry of National Development, Singapore. (2014) From Garden City to City in a Garden.
8.	National Parks Board. (2015) Available from http://www.nparks.gov.sg/gardens-parks-and-nature [Accessed February 2015].
9.	Tokyo Metropolitan Government, Japan. (2014a) Basic Policies for the 10-Year Project for Green Tokyo.
10.	Tokyo Metropolitan Government, Japan. (2014b) Tokyo Vision 2020.