Press Release: Inadequate Housing Units Survey under Extreme Heat 2024

Climate Blog

2024-08-12

Press Release: Inadequate Housing Units Survey under Extreme Heat 2024

Jointly released by Kwai Chung Subdivided Flat Community Association and CarbonCare InnoLab

The latest assessment report from the Intergovernmental Panel on Climate Change (IPCC) indicates that, if current trends continue, the global average temperature rise could reach 1.5°C by 2030. Moreover, the World Meteorological Organization (WMO) has confirmed that 2023 was the hottest year on record. The effects of climate change are becoming increasingly evident in Hong Kong. In July alone, the Hong Kong Observatory issued hot weather warnings on 21 days. Extreme weather conditions pose a significant threat, particularly to vulnerable communities such as residents of subdivided flats. Currently, over 210,000 people are on the waiting list for public housing and reside in inadequate housing such as subdivided units, rooftop houses, industrial buildings, and lofts. These environments are not only harsh and cramped but also pose a severe risk of heatstroke during extreme temperatures, heightening concerns about safety and the cost of energy.

In response to these conditions, the Kwai Chung Subdivided Flat Community Association and the CarbonCare InnoLab conducted a temperature survey in July 2024 on the residents of inadequate housing in the Kwai Ching district. The survey aimed to raise public awareness and reflect on the living conditions, analyzing and suggesting improvements for current policies.

During the survey period, the Hong Kong Observatory recorded an average outdoor temperature of 30.2°C. Meanwhile, the highest indoor temperature in rooftop/platform units (including loft subdivided flats) reached 36.4°C, which is 6.2°C higher than the outdoor temperature. This significant difference indicates that these types of living conditions face particularly severe heat hazards.

The survey also measured the apparent temperature, taking into account temperature, humidity, and wind speed, and found that all surveyed dwellings experienced apparent temperatures around 6°C higher than the measured indoor temperatures, reaching the "extreme caution level" (33°C-39°C). The worst cases, such as rooftop, platform, and loft subdivided flats, recorded apparent temperatures as high as 42.8°C, classified as "danger level" (40°C-50°C). This shows that outdoor temperatures alone are insufficient for assessing the actual heat stress in extreme conditions and that the risk of heatstroke in inadequate housing can be severe or easily overlooked.

Residents of inadequate housing, such as Ms. Chan from a rooftop flat, mentioned, "The temperature is so high that I have to take several showers a day; there's nothing else I can do!"

In addition, the survey included a questionnaire that collected data on the number of discomfort occurrences within the dwellings during the survey period, including symptoms like asthma, dry mouth, reduced urine output, headaches, dizziness, nausea, excessive sweating, cramping, and elevated body temperature—all early signs of or actual heatstroke symptoms.

According to housing type, the highest incidence of heatstroke symptoms was in industrial building subdivided flats, with 85.7% of residents experiencing such symptoms, followed by standard subdivided flats (71.4%) and rooftop/platform units (54.6%). The lowest incidence was in social housing (composite housing) at 42.9%. The higher likelihood of heatstroke in industrial building flats may relate to issues with ventilation and air circulation within the buildings.

Residents generally exhibited early signs of heatstroke or heatstroke in these harsh living conditions, regardless of whether they had chronic illnesses, indicating multiple adverse health reactions. This survey reiterates the unsuitability and crisis of "inadequate housing," where residents face long-term heat injuries requiring urgent attention and prioritized enforcement and relocation solutions.

Lucy, a resident of an industrial building subdivided flat, jokingly said, "Lucky me, it's like living in a sauna at home!" and added, "I go alone and don't turn on anything, but with two people, we start the air conditioner."

Under similar perceived temperatures, the incidence of heatstroke symptoms in subdivided flat residents in industrial buildings is twice as high as that in public housing (composite housing) residents.

During the survey period, the perceived temperatures of residents in subdivided flats in industrial buildings and public housing (composite housing) were similar (differing by no more than 1 degree). Sorted by housing type, the highest incidence of heatstroke symptoms was found in industrial building subdivided flats, with 85.7% of residents experiencing symptoms; the lowest incidence was in public housing (composite housing), where 42.9% of residents felt discomfort, a difference of twice the rate. The higher probability of heatstroke in industrial buildings reflects the direct impact of poor air circulation and ventilation deficiencies on discomfort. In public housing, environmental features like convection design, air circulation, and the safety of opening doors and windows allow residents to reduce discomfort in hot environments, improving the living conditions of subdivided flat residents.

The "Task Force on Solving Subdivided Flat Issues" proposes to establish appropriate "Housing Standards" to address the housing needs of grassroots citizens.

In the 2023 Policy Address, the government established the "Task Force on Solving Subdivided Flat Issues," and will set a series of standards in August this year to crackdown on poor-quality subdivided flats. Cracking down on "poor-quality subdivided flats" will undoubtedly protect subdivided flat residents. During the crackdown, in addition to ensuring resettlement packages, it is also necessary to provide a clear framework and standards to help the public understand what qualifies as an "adequate" subdivided flat. The survey found that neighbors in inadequate housing feel extremely hot and uncomfortable during hot weather, sometimes even experiencing physical discomfort, reflecting a lack of clear "Housing Standards," such as the need for adequate windows for ventilation. Currently, the "Right to Adequate Housing" proposed by the United Nations does not have standards suitable for Hong Kong, so it is recommended that the "Task Force on Solving Subdivided Flat Issues" establish relevant standards based on local conditions and the needs of residents in inadequate housing. According to the indicators and suggestions proposed by the "Hong Kong Concerned Subdivided Flats Platform," in terms of services, materials, equipment, and infrastructure, it is essential to ensure that all residential environments meet the Building Ordinance in terms of sanitation, ventilation, and lighting:

Living units must have sufficient windows.
Living units must have an independent toilet.
Living units must have an independent kitchen.
Living units must have a proper drainage system.
Living units must have proper sanitary facilities such as a water heater, washbasin, toilet, bathtub, or shower equipment.

Mr, Tai Long Tat, a member of the Kwai Chung Subdivided Flats Neighbourhood Association, stated that the Task Force should consider the actual needs of residents when setting standards: "Even if there is a window, it must be checked whether it really can be used for ventilation, and not just open to a wall."

Providing a hot weather allowance is urgently needed to relieve pressure.

As extreme weather conditions become more frequent, residents of inadequate housing, whether in the Kwai Tsing district or other areas, suffer intensely from the hot weather. This is particularly severe for those living on rooftops and building platforms, with many residents feeling discomfort, dizziness, and even experiencing heatstroke at home. Although air conditioning helps relieve these conditions, the severe overcharging for electricity in subdivided flats, often more than double the power company's rates, makes it difficult for grassroots residents to afford it long-term. Elderly residents, in an effort to save on expenses, are forced to spend long hours in malls using "free air conditioning." Therefore, it is suggested that the government's Care Fund provide a time-limited hot weather allowance during months with frequent hot weather warnings, to help residents of inadequate housing cope with the severe financial and life pressures brought about by hot weather.

Mr. Mok, a rooftop resident in inadequate housing, said: "Electricity costs are high in summer, and we need to save on other living expenses." "Old folks' homes" charge more for electricity from May to October, and the government should also provide a subsidy during these months.

Review and Improvement of the "CLP Fuel Cost Subsidy Scheme"

In the past, CLP has continuously provided one-time subsidy programs such as the "CLP Fuel Cost Subsidy Scheme" and "Power Connect" to subdivided flat residents. These programs have been able to alleviate the pressure of electricity costs on residents living in inadequate housing, achieving a temporary solution. It is hoped that CLP can make the subsidy program a regular annual offering and increase the amount of subsidy provided.

Re-launching the Home Improvement Subsidy to Help Residents Acquire Energy-Efficient Appliances

In 2020, the Community Care Fund launched a one-time subsidy program for low-income subdivided flat residents, supporting those in inadequate housing to carry out simple renovations, purchase furniture and appliances, and conduct pest control. This provided residents with an opportunity to improve their living environment and enhance their resilience against extreme heat. The subsidy has directly helped residents, with many purchasing essential items such as beds, wardrobes, energy-efficient fans, and air conditioners, essential for basic living in high-humidity subdivided flats. It is suggested that the government re-launch this program to help residents acquire energy-efficient appliances and tackle the harsh living conditions and energy burdens of cubicle housing.

Increase the Supply of Transitional Housing and Extend Its Service Duration, and Relax the "Class A and B" Tenant Ratio

The transitional housing projects promoted by the government and operators have effectively improved the living environment for residents in inadequate housing. However, the operational duration of these projects is constrained by the "short-term land lease system," typically lasting only three years. Some residents may not be allocated public housing within the operational period and may have to return to substandard subdivided flats, failing to fundamentally improve their living conditions. Therefore, it is suggested that the government make better use of idle land and relax policy restrictions on short-term land leases to increase the available unit numbers and appropriately extend the operational and rental periods of these projects to genuinely enhance the living conditions of residents in inadequate housing. It is also recommended to flexibly adjust and relax the "Class A and B" tenant ratio to 50:50 in transitional housing projects to improve the living environment for originally Class B grassroots residents and better utilize housing resources in line with policies aimed at eliminating substandard subdivided flats.

The member of Kwai Chung Subdivided Flat Community Association, Mr. Tai Long Tat, stated, "Class B community members also have urgent housing needs, and the government needs to consider their situation."

Ah Sing, a resident of social housing, shared, "Previously in a subdivided flat, it was very hot and stuffy. The heat wouldn't dissipate even by 8 PM; I had to wait until after 10 PM to go home. Now, moving to social housing is much better. There are windows and doors for ventilation, fresh air, better health, and social workers follow up closely with community needs."

Incorporate the Climate Adaptation Issue of Inadequate Housing into the "Hong Kong Climate Action Plan"

Given that the "Hong Kong Climate Action Plan 2050" published by the government in 2021 did not cover vulnerable communities in its climate adaptation section, it is urged that the government review its climate adaptation measures and targets before the fifth year of the Plan, introducing short-term adaptation goals for subdivided flat residents. Considering last year's policy address, where the Chief Executive proposed establishing a "Task Force on subdivided flat Issues," it is strongly recommended that climate adaptation measures be included as minimum standards for subdivided flats. The group also suggests incorporating climate vulnerability into the minimum standard assessment for subdivided flats and developing corresponding insulation, ventilation, and cooling measures. If standards are not met, related subdivided flats should be eliminated. Short-term measures such as improving insulation materials, installing energy-efficient cooling systems, and increasing greening facilities should be taken to reduce heat absorption.

Furthermore, as a medium to long-term measure, it is recommended that the government develop building codes for extreme heat to ensure subdivided flats can withstand extreme temperatures; also, educational and outreach activities should be provided to enhance safety awareness and knowledge of energy-efficient cooling among residents of inadequate housing during extreme heat, introducing community resources available during extreme heat and establishing appropriately located community cooling centers to assist residents in safely transitioning and improving their lives.