Promoting hiking safety and sustainability

• Hiking offers a variety of benefits for the body, mind and soul. In Hong Kong, a survey indicates that the number of visitors to country parks has more than doubled over the last two to three decades, to an estimated 12.4 million visitors in 2021.^{1Legend symbol denoting See University of Hong Kong (2019) and Agriculture, Fisheries and Conservation Department ("AFCD") (2022).} This coincided with (a) a greater Government push to promote green tourism and countryside landscapes, as part of the Development Blueprint for Hong Kong's Tourism Industry promulgated in 2017; and (b) an increasing popularity for hiking as a pastime activity amid the COVID-19 pandemic, when more people take to the picturesque hiking trails for a bit of fresh air and reprieve.
• Yet partly fuelled by the circulation of adventurous photos on social media, there is an influx of inexperienced and inadequately prepared hikers in the wilderness. This has prompted concerns over safety, given an alarming spike in hiking accidents in recent years (Figure 1) and more visible strain on rescue resources.^{2Legend symbol denoting In 2020, the Government Flying Services conducted 885 flights to assist in the rescue of hikers, compared with 435 in 2018. Each helicopter call-out is estimated to cost over HK$20,000 (including maintenance and fuel costs). See GovHK (2021a, 2021c).} Concerns have also grown over sustainability, owing to trail degradation and vegetation loss, among other environmental problems. Some Legislative Council Members have thus urged for stepped-up measures to minimize the adverse impact of hiking activities.^{3Legend symbol denoting These issues have been discussed by Members on multiple occasions over the past several years. See GovHK (2018a, 2018b, 2021b).}
• Globally, country park operators have adopted an array of strategies to promote low-impact hiking. While direct strategies involve regulatory enforcement and imposing restrictions on visitors (e.g. limiting use of challenging trails and during peak times), indirect strategies focus more on light-handed approaches such as modifying visitor behaviour through education, and improving the resilience of infrastructure such as hiking trails.^{4Legend symbol denoting See Marion, J. and Brame, S.C. (1996) and Wu, C.C. et al. (2021).} This issue of Essentials reviews relevant measures in Hong Kong before examining the examples of the Mainland, Taiwan and the United States ("US"). Home to multiple renowned natural attractions, these places have ramped up efforts to promote safety and/or sustainability aspects of hiking.

• Though considered as a "concrete jungle" by many, Hong Kong actually has 24 country parks, 22 special areas for conservation and other protected areas that together cover more than 40% of the city's land area.^{6Legend symbol denoting See Environmental Protection Department (2021).} There are some 80 hiking trails totalling 500 kilometres within these areas.^{7Legend symbol denoting See GovHK (2018b).} Various Government departments have introduced educational initiatives to raise public awareness of safe and sustainable hiking practices.^{8Legend symbol denoting For instance, the Hong Kong Police Force and Fire Services Department have provided safe hiking tips through social media platforms; the Civil Aid Service hosts mountaineering safety seminars for students and distributes promotional materials at starting points of popular hiking trails. Meanwhile, AFCD uses exhibitions, game booths, TV/online advertisements to promote safe and "leave no trace" hiking practices. See GovHK (2018a).} In particular, the Agriculture, Fisheries and Conservation Department ("AFCD") has launched the "Enjoy Hiking" website and mobile application ("app") to provide useful information for visitors to estimate the difficulty level of their hiking trips, as well as putting up warning signs to deter hikers from entering accident hotspots.^{9Legend symbol denoting AFCD has listed a number of high-risk locations in country parks that are more dangerous to hike and with previous record of serious and fatal accidents. See ibid.}
• In light of environmental issues such as trail degradation and vegetation loss, the 2021-2022 Budget has earmarked HK$55 million to carry out enhancement works on 10 popular hiking trails with potential for tourism.^{10Legend symbol denoting See The Budget (2021).} AFCD has also stepped up law enforcement by issuing fixed penalty notices against littering, apart from adding more water filling stations to encourage visitors to bring their own bottles.^{11Legend symbol denoting See GovHK (2021b).} Despite these measures, there remain some issues of concern:
  • (a)
    Hiking safety: Following a surge in hiking accidents, some have called for broader measures to complement existing strategies, especially in high-risk locations. Among others, there are suggestions that Hong Kong should explore the feasibility of levying a rescue charge on hikers for costly operations, while some have recommended developing safety standards for hiking activities, such as requiring hikers to carry suitable equipment while attempting challenging routes.^{12Legend symbol denoting See 經濟日報(2021).} Furthermore, some are concerned whether the hiking trails are well-maintained and directional/warning signs are clearly and adequately placed.^{13Legend symbol denoting See Website of Paul Zimmerman (2021) and 星島日報(2022).}
  • (b)
    Environmental sustainability: Although less rubbish was collected in country parks in 2021 ^{14Legend symbol denoting The amount of litter collected in country parks dropped from 2 943 tonnes in 2018 to about 1 800 tonnes in 2021, representing a decline of 39%. AFCD attributed the significant decline to the closure of all barbecue sites and campsites during the pandemic. See GovHK (2021b) and Agriculture, Fisheries and Conservation Department (2022).}, there have been reports of littering, overflowing bins and trampled vegetation after long holidays.^{15Legend symbol denoting See 東方日報(2020), 香港商報(2021) and 香港01(2020a).} Concerns have also grown over pollution and congestion caused by busier traffic, since entry permits are generally not required for access to most natural attractions in Hong Kong.^{16Legend symbol denoting Some exceptions are the Mai Po Nature Reserve and Hong Kong Wetland Park.} Some propose that the Government should manage the flow of visitors and vehicles by diverting crowds to places with greater ecological carrying capacity; others have called for promotion of low-impact hiking activities.^{17Legend symbol denoting See 星島日報(2021), Green Power (2017) and 香港01(2020b).}

• On the Mainland, some places have started to bill hikers for the cost of rescues with a view to deterring reckless adventuring.^{18Legend symbol denoting These include several scenic areas in the Sichuan Province, with one of them reportedly charging at least RMB15,000 (HK$16,300) for a rescue. See 新華社(2021).} A notable example is Mount Huangshan (黃山), a United Nations Educational, Scientific and Cultural Organization ("UNESCO") World Heritage Site known for its granite peaks and challenging hiking trails, which led to as many as 400 rescue missions every year.^{19Legend symbol denoting See 黃山市人民政府(2018).} Since 2018, Huangshan has introduced regulations that enable the local government to partially recover rescue costs from hikers who enter restricted mountain areas that are classified as closed or undeveloped. These include any medical expenses and costs associated with the use of aircraft and equipment, as well as salaries and insurance coverage for rescuers.^{20Legend symbol denoting See 黃山市黃山區人民政府(2018).}
• After the regulations came into effect, the first rescued hiker was charged RMB3,200 (HK$3,500) for a seven-hour rescue that cost the government a total of RMB15,000 (HK$16,300).^{21Legend symbol denoting See 中新網(2019).} While there have been concerns that such regulations would discourage the needy from seeking assistance, the number of cases involving entry into restricted areas in Huangshan plunged 81% to 41 in 2019, from 212 in 2016.^{22Legend symbol denoting See 新華社(2021).}

• As for Taiwan, at least four counties including Nantou (南投) and Taichung (台中) have laws requiring additional safety measures in exceptionally risky mountain areas. Specifically, Nantou, home to Taiwan's highest peak and other rugged mountains, introduced relevant regulations in 2017. Under the regulations, hikers must not stray from official paths and should carry suitable communications equipment such as GPS-enabled devices and satellite phones when attempting a list of designated challenging trails.^{23Legend symbol denoting In Nantou, nearly 100 mountains have been designated as "restricted mountain areas (管制山域)", with the majority of them being high mountains above 900 metres or more challenging routes. See 南投縣消防局(2020).} Certain high peaks and accident hotspots are subject to additional restrictions. For instance, hikers must be led by a licenced guide.^{24Legend symbol denoting One of the strictest rules apply to those hiking in restricted areas in Yushan (玉山), Taiwan's highest peak at over 3 900 metres. To enter the area, hikers must apply for mountain permits and submit a detailed hiking plan and contact information of their team members. Before departure, hikers also need to attend a hiking safety course online or at any visitor centre in the park. See Yushan Park Headquarters (2021, 2022).} Law enforcement officials are authorized to conduct checks on hikers. Violations of the above rules can result in fines of up to NT$50,000 (HK$12,300) plus additional charges if rescue services are requested.^{25Legend symbol denoting From 2017 to 2020, 23 penalty notices were reportedly issued in Taichung, with another 21 cases involving the payment of rescue costs. See 中央通訊社(2021).}
• Taiwan initially reported fewer hiking accidents following the implementation of hiking regulations in several counties. Since 2017, the number of mountain rescues in Taiwan had dropped by 21% to 207 cases in 2019, although it rebounded to 398 cases in 2021 amid a hiking boom during the pandemic.^{26Legend symbol denoting See 台灣消防處(2022).} Nevertheless, law enforcement has remained a challenge as there are reportedly few inspectors relative to the size of mountain areas in Taiwan, prompting the authorities to enhance the remuneration package for inspectors so as to attract more new blood.^{27Legend symbol denoting See Newtalk新聞(2021).}

• In light of a surge in hiking accidents, Taiwan authorities are cooperating with local groups to promote mountaineering safety, apart from leveraging legislation and enforcement. Social media are spurring an increase in risky hiking activities. To counteract this influence, the Taiwan authorities regularly invite popular and experienced outdoor bloggers and trainers to organize talks or field trips, covering topics such as basic hiking and first-aid techniques, clothing and equipment selection, etc.^{28Legend symbol denoting See for example 健行筆記(2020) and 台灣山林悠遊網(2019).} Another example involves collaboration with a popular local hiking platform to gather public feedback on trail and campsite conditions. Over the last year, hikers made some 3 700 reports (e.g. damaged trails, fallen trees and landslides) via the platform's hiking app for the authorities to follow-up.^{29Legend symbol denoting The app, launched in 2018, is a popular trail database in Taiwan with more than 20 000 downloads and 223 000 followers on its social media platform. See 林務局(2020) and 健行筆記(2022).}
• Meanwhile, confusing directional signages can take a toll on the safety of hikers. Taiwan is tapping into local effort to ensure its trails are in good shape. It has held workshops to solicit input from over 10 mountaineering groups to improve signages for unmarked or impassable routes at selected locations. A recent example involved placing 86 reflective signages (one every 100 metres) at an accident hotspot in Taichung to improve visibility under rainy and foggy conditions.^{30Legend symbol denoting See 林務局東勢林區管理處(2021) and 台灣登山研討會(2015).}

• Similar to Hong Kong, the US has seen a boom in visits to its natural attractions over the last decade. In 2021, the US National Park Service ("NPS") hosted 297 million visitors at its national parks and sites.^{31Legend symbol denoting See National Park Service (2022a).} Multiple parks set records for visitation, resulting in problems such as overcrowding and traffic congestion. In response to the pandemic's over-tourism impact on national parks, the Senate Energy and Natural Resources Subcommittee on National Parks held a hearing in July 2021 to discuss strategic approaches to visitor and traffic management. Salient measures undertaken by NPS are summarized below:
  • (a)
    Managing crowds with real-time information: Since April 2021, NPS has introduced a mobile app to consolidate visitor information for its 423 national parks. This app, designed to facilitate advanced trip planning, provides live updates on campground availability as well as park conditions (e.g. road/trail closures) and adverse weather warnings.^{32Legend symbol denoting See National Park Service (2021a).} Such information helps manage visitors' expectations and encourages them to be flexible in adjusting their plan and visiting less-trafficked locations instead. At popular destinations like the Yellowstone National Park, webcams are also used to livestream traffic at entrances and even geyser eruptions for people to watch online instead of visiting in person.^{33Legend symbol denoting See National Park Service (2022c).}
  • (b)
    Implementing traffic management measures: To further spread visitation and curb excessive traffic, in addition to charging a visitor entrance fee, NPS has piloted a timed reservation system for vehicle access at several national parks during the pandemic. At the Rocky Mountain National Park, for example, visitors were required to make reservations online one month in advance for using private vehicles (including motorcycles) to enter popular park locations during peak times in summer 2022, reportedly causing reduced traffic congestion and queueing at parking lots.^{34Legend symbol denoting See Senate Committee on Energy and Natural Resources (2021).}

    In the longer term, NPS is also exploring green transport options to alleviate the environmental impact of heavy traffic. For instance, more than 140 electric vehicle charging stations have been installed in or en route to national parks, with more in the pipeline.^{35Legend symbol denoting See National Park Service (2021b).} In 2021, the Yellowstone even trialled launching a slow-speed electric driverless bus service, with potential expansion in the future.^{36Legend symbol denoting See National Park Service (2022b).}

• Hikers deviating from designated trails in search of adventures or shortcuts not only pose safety concerns, but also cause vegetation loss and soil erosion. To reduce the environmental impact of hiking activities, the US Geological Survey ("USGS"), the government's scientific agency, has worked with national park operators to examine ways to improve the design and resilience of park infrastructure such as trails and campsites.^{37Legend symbol denoting For example, a USGS study has shown that trails with side-slopes are preferred over trails built on flatter terrain, so as to allow water drainage and prevent soil loss. Another project is underway to identify sustainable camping locations and create online maps that visitors can download to their smartphones or GPS devices. See United States Geological Survey (2021).} Among others, USGS has tested various methods to discourage off-trail hiking, including building low fencing, and using organic materials (e.g. leaves and branches) to conceal and prevent the use of informal trails. One trail under study saw a reduction in off-trail hiking from 26% to 2%.^{38Legend symbol denoting See United States Geological Survey (2018) and Hockett, K.S. et al. (2017).}
• Various creative educational campaigns have also been launched to instil low-impact hiking ethics among visitors. To illustrate, NPS has designated quiet zones in California's redwood forest in Muir Woods to protect the natural soundscape and reduce impacts on wildlife. In these zones, "shush" signs are put up to remind visitors to walk quietly and mute their mobiles on selected days. A study showed that the sound level in these zones dropped by three decibels, the equivalent of removing 1 200 visitors from the park.^{39Legend symbol denoting See National Park Service (2018). In Hong Kong, such campaigns are not commonly seen, but both the Mai Po Nature Reserve and country parks have a general guideline/code advising visitors to keep their noise to a minimum.}
• As another example, some local governments in the US are riding on the global trend of plogging^{40Legend symbol denoting Originated in Sweden in 2016, plogging is a fitness trend that has spread to many places to raise awareness about plastic pollution. In Hong Kong, several plogging events were reportedly held by local groups.} to promote this eco-friendly workout that combines jogging and litter collection in state/national parks. In 2021, participants in a plogging challenge organized by Maryland's Montgomery County received a kit containing trash bags, gloves, a litter grabber and hand sanitizer. Those who submitted photos of themselves plogging in designated park locations might also win prizes, including US$50 (HK$390) for renting park facilities.^{41Legend symbol denoting See Montgomery County Department of Environmental Protection (2021).} These clean-up activities have resulted in 62 tonnes of trash (or four double-decker buses by weight) being removed from Montgomery's parkland annually.^{42Legend symbol denoting See Montgomery Parks (2022).}

• The COVID-19 pandemic has fuelled a hiking boom in Hong Kong and other places. To enhance hiking safety, some scenic spots on the Mainland have charged reckless hikers for rescue operations, which resulted in a nearly 80% drop in cases involving entry into restricted mountain areas. Aside from imposing additional safety requirement in high-risk locations, Taiwan has effectively harnessed community effort to help identify potential danger on trails and improve signages in accident hotspots. Whereas in the US, park operators have explored multiple solutions to alleviate the environmental impacts of overcrowding. These range from disseminating real-time park information via mobile app and using timed reservation systems for traffic management, to discouraging off-trail hiking and introducing quiet zones and plogging challenges to promote low-impact outdoor activities. These examples can potentially spark new ideas and approaches to promoting safe and sustainable hiking practices in Hong Kong.