A citizen is firmly stopped at the entrance of a restaurant with her emotional support dog; a family with a cart carrying their beloved cat is denied entry at a MTR gate. These everyday scenes reflect a significant gap in Hong Kong’s “pet-friendly” policies as an international metropolis.

In 2023, a survey conducted by local animal organizations found that over 70% of pet owners believe that the restrictions on companion animals in public transport and eateries are excessively harsh and disconnected from modern urban life. As the proportion of pet-owning families continues to rise, the demand for social inclusion and the associated “pet economy” has become increasingly urgent.

However, the relevant laws in Hong Kong—most notably the Food Business Regulation—seem to be stuck in another era. These outdated provisions are materially obstructing the realization of a more inclusive and friendly urban vision.

• Legal Barriers: The Outdated Food Business Regulation and Public Transport Codes
  
  The main legal basis for restricting companion animals in public spaces is Section 10B of the Food Business Regulation (Cap 132X), which states unequivocally: “No person shall bring a dog into or allow any person to bring a dog into any food business premises.” There are only a handful of exceptions, such as licensed sales or exhibition of animals.
  
  This law, formulated decades ago primarily based on past public health perceptions, has a distinctly “one-size-fits-all” nature. It makes no distinctions regarding the animal species (does this apply to non-dog animals?), size, or whether they are placed in pet bags or carts. Furthermore, it does not take into account advances in modern animal management technology (such as vaccines and deworming). It categorically excludes all dogs from areas like restaurants and cafes.
  
  In terms of public transport, restrictions come from the by-laws or internal rules of various operators. For instance, the MTR’s “MTR By-Law” prohibits animals from entering, allowing only approved guide dogs or animals inside “compliant containers” (typically interpreted as completely sealed pet carriers). This means that even if a pet is quietly lying in a stroller or pet bag, if the container is not completely sealed, entry may still be denied. Bus and minibus regulations are even more ambiguous and inconsistent, relying entirely on the individual driver’s judgment, leading to significant uncertainty and distress for pet owners.
  
  This set of laws and regulations creates an invisible “wall” that separates companion animals and their families from much of social life and public spaces.
  
• The Hidden Costs: Underestimated Economic Benefits and Mental Health Value
  
  The restrictive policies result not only in personal inconvenience but also in significant social costs and overlooked benefits.
  
  First, they directly suppress the developmental potential of the “pet economy.” In pet- friendly cities like Taipei, Tokyo, and Berlin, it is common for pets to be allowed in restaurants, cafes, shopping malls, and specific public transport. This has led to a complete industrial chain from pet-friendly dining and travel to professional services. Hong Kong lags far behind in this regard, essentially forfeiting a growth point that could create jobs and stimulate consumption. In 2023, local economists estimated that if restrictions were eased, the annual growth potential of the relevant market could reach hundreds of millions of Hong Kong dollars.
  
  Furthermore, and often overlooked, is the impact of the policies on citizens’ mental health. Companion animals are vital sources of emotional support, especially for the elderly, those living alone, and individuals with special needs. Restrictions on their participation in social activities, travel, and daily life can exacerbate social isolation. A 2023 local mental health study found that pet owners who could participate in public activities with their pets had significantly higher life satisfaction and social connectedness. A city that prohibits animals from participating in outings is, to some extent, a city that does not sufficiently care for the emotional well-being of its citizens.
  
  Moreover, rigid prohibitions do not help cultivate a culture of responsible pet ownership. Instead, they may drive some owners toward riskier choices (e.g., leaving animals in vehicles) when they need to travel, or even conceal carrying animals, which could exacerbate management chaos and potential conflicts.
  
• Global Practices: Tiered Management and Responsibility First
  
  Looking globally, advanced cities have already abandoned the lazy governance mentality of “total prohibition” and instead adopted a more nuanced, responsibility- centric management model.
  
  • Zoned Management: Many cities do not completely open up but instead legislate specific “pet-friendly” and “restricted” zones and times. For example, restaurants can apply for a “pet-friendly” license, provided they meet additional hygiene conditions (like establishing specific areas and enhancing cleaning standards); parks designate specific areas for pet activity, and public transport allows animals in pet bags or strollers during non-peak hours.
    
  • Clear Responsibilities and Strict Penalties: The cornerstone of these policies is clearly defining the legal responsibilities of pet owners. For example, animals must be under constant control (on a leash or in containers), waste must be cleaned up immediately, and animals must be removed if they disturb others. Clear penalties for violations exist. This model shifts the management focus from “managing animals” to “managing owners,” encouraging responsible behavior.
    
  • Gradual Opening of Public Transport: Subway systems in Berlin and Paris allow small pets to travel without a ticket or with a pet ticket. Many private railways permit pets in compliant containers on board. These experiences prove that coexistence of public transport and pets is entirely feasible through clear rules (like container specifications and travel times).
    
• Dismantling the Wall: A Four-Step Roadmap for Building Pet-Friendly Policies in Hong Kong
  
  For Hong Kong to transition from “restriction” to “inclusion,” a systemic shift in policy thinking is needed. We recommend the following sequential roadmap:
  
  • Step 1: Conduct a Comprehensive Social Impact Assessment and Public Consultation
    
    The government should immediately commission an independent institution to conduct a comprehensive study on easing animal access in public spaces. This is not just about data collection but is crucial for rebuilding the foundation for policy discussions. The study should quantitatively assess:
    
    • Actual risks to public health and safety (based on science and data from other cities, not speculation).
    • Economic benefits to tourism, dining, and retail industries.
    • Acceptance and main concerns of citizens (including both pet owners and non- pet owners).
      
      This report should serve as the objective basis for all subsequent policy discussions.
      
  • Step 2: Amend the Food Business Regulation to Introduce a “Pet-Friendly Premises” Licensing System
    
    This is the core legal reform. We recommend amending Section 10B to replace the current absolute ban with a voluntary “Pet-Friendly Food Business Premises” license condition. Eateries that are willing and meet the criteria (e.g., having separate ventilation areas, establishing cleaning protocols, training staff) can apply for this additional license, allowing pets to enter designated areas legally. This grants the industry choice and flexibility while providing clear options for citizens.
    
  • Step 3: Collaborate with Public Transport Operators to Establish Clear, Consistent Guidelines for Pet Access
    
    The government should take the initiative to coordinate with MTR, franchised bus companies, and others, referencing international experiences to collectively develop a unified, clear, and actionable set of guidelines for pet access. For example:
    
    • Clear specifications for container standards (size, closure).
    • Designation of allowed travel times (e.g., non-peak hours).
    • Requirements that animals must be in containers and cannot occupy seats.
    • Establishment of a pet ticket or surcharge system.
      
      Begin trial runs on specific routes or time slots, collect data and adjust, then gradually roll out.
      
      
  • Step 4: Launch a Citywide Public Education Campaign “Be a Responsible Pet Owner”
    
    Policy relaxation must be paired with civic education. The government, in collaboration with animal welfare organizations, should initiate a large-scale educational campaign to widely promote the core guidelines of “Responsible Pet Ownership” through media, schools, and community networks: leash/container management, immediate cleanup, respect for others, and ensuring vaccinations are up to date. Clearly communicate the message that “rights come with responsibilities,” fostering a positive social atmosphere for policy reform.
    
    When we talk about building pet-friendly cities, we’re not just discussing letting cats and dogs into restaurants or subways. We are talking about recognizing the status of companion animals as family members in modern households, respecting citizens’ rights to choose their lifestyles, and employing scientific and management wisdom to solve problems instead of evading them with bans.
    
    This legal wall obstructing public spaces has been standing for too long. The year 2023 is the best time to start dismantling it. This requires the courage of the government, the vision of legislators, the innovation of the industry, and rational discussions among all citizens. Let us work together to transform Hong Kong into a truly livable city that is not just economically prosperous but also warm and inclusive of all family members.