單一罰款制度不全面 倡重審並推行城市規劃和管理
【2023年12月4日 – 香港】政府較早前修訂《野生動物保護條例》正式刊憲，計劃將現行禁止餵飼野生動物的範圍擴展至白鴿。違例罰款將大幅提高至10萬元以及監禁一年，又引入 5,000元定額罰款機制。我們相信政府此舉目標不是滅絕白鴿，而是希望從而減低鴿子高度聚集對巿民產生的滋擾。但餵鴿和鴿子聚集問題往往跟城市環境和基礎設施有關－例如垃圾管理、教育和環境設施等。因此，單一罰款制度並不能徹底解決以上問題，反需要更全面的城市規劃和管理措施。有見及此，在未有完善城巿規劃之前，我們倡議重審並為管理措施和城市規劃推行公眾諮詢，創造多管齊下的完善城巿。
The government recently amended the Wild Animals Protection Ordinance, officially gazetted, with plans to extend the current prohibition on feeding wild animals to include pigeons. The penalty for violations will significantly increase to HKD 100,000, with a one-year imprisonment term and the introduction of a fixed penalty of HKD 5,000. We believe that the government's aim is not to eradicate pigeons but rather to reduce the disturbance caused by the high concentration of pigeons to the public. However, the issues of feeding pigeons and pigeon congregations are often related to urban environments and infrastructure, such as waste management, education, and environmental facilities. Therefore, a single penalty system cannot completely address these issues but rather requires more comprehensive urban planning and management measures. In light of this, until there is a well-planned urban strategy, we advocate for a reconsideration and public consultation on management measures and urban planning, creating a holistic approach for a better city.
多項措施減低鴿子聚集 香港卻未睇齊
許多國家已經一早放棄單一罰款制度，除了對餵鴿實施罰款之外，更會採納多項措施達至有效管理在城巿生活的白鴿並控制其繁殖數量。反觀香港實施單一罰款制度已超過30多年卻未見成效，若繼續堅持單一罰款制度只會令城巿發展步伐顯得更為落後。
Multiple measures to reduce pigeon population have been adopted in many countries. However, Hong Kong has yet to catch up with these nations that have long abandoned the single-penalty system. In addition to imposing fines for feeding pigeons, these countries have implemented various measures to effectively manage urban-dwelling pigeons and control their reproductive numbers. In contrast, Hong Kong has persisted with a single-penalty system for over 30 years without visible success. Insisting on this approach will only further hinder the city's development progress.
單一罰款的效果通常是有限，並且無法根本地改變人們的行為。這是因為罰款僅僅處罰了違法行為，而沒有提供更有效的解決方案及更好的城市的生存條件，以致許多幼鴿和成年鴿子死於食物缺乏或營養不良，難令市民放心由鴿子「天生天養、自食其力」。
The effectiveness of a single fine is typically limited and cannot fundamentally change people's behavior. This is because fines merely punish the illegal act without providing more effective solutions and improving the overall living conditions in the city. As a result, many young and adult pigeons die due to a lack of food or malnutrition, making it difficult for citizens to feel assured that pigeons can naturally sustain themselves.
成立超過 40年著名的德國動物保護組織 Menschen für Tierrechte (People for Animal Rights)* 於2022年以德國作為藍圖，為野鴿問題進行研究並表示 “實行單一禁止餵食後，飢餓的鴿子只會大大增加了對居民和商店的滋擾。例如，牠們會站在桌子上，直接從碗碟上啄起剩下的食物、穿過繁忙的步行區覓食、在咖啡館和骯髒的桌椅上方等待食物、走進麵包店和超市等。”
Established for over 40 years, the renowned German animal protection organization Menschen für Tierrechte (People for Animal Rights) conducted research on the pigeon issue in 2022, using Germany as a blueprint. They stated, "Implementing a single feeding ban only significantly increases the nuisance to residents and businesses. For instance, pigeons would perch on tables, directly pecking at leftover food from plates, traverse busy pedestrian zones in search of food, wait above cafes and on dirty tables and chairs for food, and enter bakeries and supermarkets."
*Menschen für Tierrechte 在法律、政治、科學和社會層面上倡議基本的動物權利。他們倡議逐步淘汰動物實驗、提升農場動物福利以及反對虐待動物。他們與公眾、記者、科學家、政治家和當局合作，為動物帶來系統性改變。
白鴿成箭靶淪為害蟲 虐殺數目明顯上升 生存權利近乎零
白鴿於1997年前本為「馴養家禽類」，可惜爆發禽流感後未經証實病毒來源之前已一刀切變為「禁養家禽」，頓時流離失所淪為害蟲。而本性溫純的他們，在城巿生存的權利卻未能與其他野生雀鳥同樣睇齊得到保護。
翻看有關數字，舉報或發現懷疑虐殺白鴿的求助數目由2022年的15宗增加至2023年的30宗，增幅高達50%。 當中最受傳媒關注的一宗為將軍澳一位中年漢慣性地將數隻白鴿折斷雙翼及雙腳，判處卻只有10日。
Before 1997, pigeons were classified as "domesticated poultry." Unfortunately, due to the outbreak of avian influenza, without varifying the virus source, they were abruptly reclassified into "prohibited poultry keeping." Consequently, they went from being domesticated birds to being considered pests. Despite their inherently gentle nature, their right to survive in the city has not received the same protection as other wild birds.
Looking at the relevant figures, the number of reports or cases of suspected abuse of white pigeons has increased from 15 in 2022 to 30 in 2023, marking a substantial 50% rise. One particularly media-covered case involved a middle-aged man in Tseung Kwan O habitually breaking the wings and legs of several white pigeons, yet he received only a 10-day sentence.
而本群收到單單有關白鴿受傷、生病個案求助，每天最高可多達 15 宗，保守估計全年求助個案超過1,800宗。 反觀相比嘉道理農場暨植物園的野生動物拯救中心三月時透露 2023年所接收的雀鳥數目2,050隻不相伯仲。 然而白鴿現時於香港並不是「野生雀鳥」或非本土雀鳥，而為「家禽」。所以於本群收到的所有求助個案都沒有一宗 能被嘉道理農場或其他機構接收並給予基本冶療，沒有任何生存權利可言。
Our group alone receives reports of injured or sick pigeons, with the number reaching as high as 15 cases per day, conservatively estimated to exceed 1,800 cases throughout the year. In comparison, the Kadoorie Farm and Botanic Garden's Wild Animal Rescue Centre revealed in March that they had received a total of 2,050 birds in 2023, including various wild birds. However, white pigeons in Hong Kong are not classified as "wild birds" or non-native birds but rather as "poultry." Consequently, none of the cases received by this group can be taken in by Kadoorie Farm or other institutions for basic care, as they are deemed without any right to survival.
化解人類與鴿子的衝突 多管齊下才奏效
香港救援鳩鴿及雀鳥曾於2021年與德國、英國等注重動物權益的國家非牟利雀鳥救援組織交流，其中德國組織 Netzwerk Taubenrettung Hannover 表示以下是一些經過反覆試驗並沿用至今的綜合方法及建議。這些方法均可在平衡禁止餵鴿、動物福利和公眾利益取得平衡：
1.從根源解決、為白鴿絕育： 白鴿數量過多或衍生出糞便污染等問題，這些都可能對城市的衛生和美觀造成影響。
Hong Kong Pigeon and Bird Rescue engaged in exchanges with non-profit bird rescue organizations in animal rights-focused countries such as Germany and the United Kingdom in 2021. The German organization Netzwerk Taubenrettung Hannover, in particular, shared some comprehensive methods and recommendations that have been repeatedly tested and are still in use today. These methods aim to strike a balance between prohibiting pigeon feeding, ensuring animal welfare, and considering public interests:
1. Addressing the Root Cause: Sterilization for Pigeons
To tackle issues such as an excessive population of pigeons and the resulting problems like fecal contamination, it is essential to implement sterilization measures. This approach aims to mitigate the impact on urban hygiene and aesthetics.
攝於英國 Chester的鴿舍和定點餵食區, 2023 (pigeon loft in Chester,UK)
可能解決方案：
- 建立鴿舍：規劃環境去建立鴿舍，可確保換走受精蛋後，減低白鴿生育數目； 此方法更可集中白鴿居住地點，改善白鴿於民居居住的情況及有效地集中處理鴿糞
- 教育宣傳：通過教育宣傳，向公眾傳遞與鴿子餵食相關的問題和風險，提高公眾意識。
Potential Solutions:
Establishing Pigeon Lofts: Designing environments to establish pigeon lofts can ensure the removal of fertilized eggs, reducing the overall reproduction of white pigeons. This method also concentrates the living areas of white pigeons, improving their living conditions in residential areas and effectively managing pigeon droppings.
Educational Campaigns: Through educational campaigns, raise public awareness about issues and risks related to feeding pigeons, fostering a greater understanding among the public.
2. 提高動物福利、達致共融社會：禁止餵鴿可能涉及動物福利問題，因為白鴿也需要食物和水來生存。香港白鴿染病機會比其他國家更多，當中原因包括長期飲用及進食受污染的食物和水所致。
Enhancing Animal Welfare for a Inclusive Society: Prohibiting pigeon feeding may raise concerns related to animal welfare, as white pigeons also require food and water for survival. White pigeons in Hong Kong face higher risks of disease compared to other countries, attributed to prolonged consumption of contaminated food and water.
可能解決方案：
- 提供替代方案：在禁止餵食的同時，提供其他替代方案，例如在鴿舍範圍內建立鴿子餵食站點，定期提供食物和水從而改變白鴿聚集的地方，避免聚居於民居 。而鴿舍亦會由受訓義工打理。
- 監管餵食：例如限制餵食的時間和地點及監管機構，確保餵食活動符合動物福利標準。
- 提供基本冶療：大學與救援機構聯辦，為傷病白鴿提供基本冶療，以減低白鴿之間的疾病傳播。
- 設立single box（鴿舍箱子）於白鴿聚集處以方便將受精鴿蛋換走，以最少空間減低白鴿數量。就如港鐵於過去一年在顯徑站外圍安裝的鳥巢箱原理相若，以解決不同雀鳥於繁殖期間築巢的需要。
- 鴿蛋及鴿糞由農夫收走並用作耕作之用。
Potential Solutions:
Provide Alternative Solutions: Alongside the prohibition of pigeon feeding, establish feeding stations within designated pigeon lofts. Periodically provide food and water to change the locations where white pigeons gather, preventing them from congregating in residential areas. Trained volunteers would manage these pigeon lofts.
Regulate Feeding: Implement regulations on the time and location of feeding, supervised by relevant authorities, ensuring that feeding activities comply with animal welfare standards.
Offer Basic Veterinary Care: Collaborate with universities and rescue organizations to provide basic medical care for injured or ill white pigeons, reducing the spread of diseases among the pigeon population.
Establish Single Boxes at Pigeon Gathering Spots: Install single boxes in areas where white pigeons gather to facilitate the removal of fertilized eggs, minimizing the pigeon population in limited spaces. This approach is similar to the nesting boxes installed by the MTR Corporation around Sheung Shui in the past year, addressing the nesting needs of different bird species during the breeding season.
Farmers collect pigeon eggs and droppings for agricultural purposes.
於1881(前水警總部) 的鴿舍
single box（鴿舍箱子）
因此，除了禁止餵食之外，德國、英國許多市政當局還有系統地推出了有利於動物福利的鴿子控制計畫，目的是調節鴿子數量，使其達到城市可接受的水平，並有效化解人與鴿子的衝突狀況。例如大量的鴿子被安置在受管理的開放鴿舍或鴿舍中，並提供充足的飼料和繁殖地點。受精的鴿蛋會被換成塑膠蛋從而減低繁殖量（亦是“Augsburg model”）。
Therefore, in addition to the prohibition of pigeon feeding, many municipal authorities in Germany and the United Kingdom have systematically implemented pigeon control programs that are favorable to animal welfare. The aim is to regulate the pigeon population to a level acceptable for the city and effectively mitigate conflicts between humans and pigeons. For instance, large groups of pigeons are settled in managed, open dovecotes or pigeon lofts, provided with ample feed and breeding places. Fertilized pigeon eggs are replaced with plastic eggs to reduce the breeding rate, following the "Augsburg model."
請推行全面城市規劃和管理措施
基於以上理據和評估，我們倡議重審並為管理措施和城市規劃推行公眾諮詢。加重罰則同時亦需給予野生動物同等的保護，我們應該尋求更全面和有效的解決方案，而不是僅僅依靠單一罰款制度。香港救援鳩鴿及雀鳥亦會個別約見江玉歡議員、張欣宇議員、田北辰議員、陳克勤議員、葛珮帆議員等，尋求更全面的解決方案。以聆聽不同聲音的意見，確保這項絕對不符合我們社會的需求和價值觀法案能成為其他措施的雛形，孕育更多有系統並有利於動物福利的鴿子控制計畫。
謝謝您撥冗閱讀這封信，並希望您能夠認真考慮我們提出的動議。讓我們一起為了社會的共同福祉而努力。
Please Implement Comprehensive Urban Planning and Management Measures
Based on the aforementioned rationale and assessment, we propose a reevaluation and public consultation for the implementation of management measures and urban planning. While increasing penalties, it is also crucial to afford equal protection to wildlife. We should seek more comprehensive and effective solutions rather than relying solely on a single fine system. Hong Kong Pigeon and Bird Rescue will also individually meet with legislators such as Councilor Kong Yu-wah, Councilor Cheung Yam-wah, Councilor Tin Pak-chun, Councilor Chan Hak-kan, Councilor Alice Mak Mei-kuen, and others to seek more comprehensive solutions. By listening to diverse opinions, we aim to ensure that this legislation, which is clearly not in line with the needs and values of our society, can serve as a prototype for other measures, fostering more systematic and animal-friendly pigeon control programs.
Thank you for taking the time to read this letter, and we hope you will seriously consider our proposal. Let us work together for the common welfare of our society.