This book was a gift from

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2 THE UNIVERSITY OF HONG KONG LIBRARIES This book was a gift from Department of Geography & Geology University of Hong Kong

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5 FOREWORD BIB.REC. DATE REC'D CLASS NO. AUTHOR NO. 2 SFP Hong Kong, despite its tiny land area, is one of the world's largest financial, manufacturing and trading centres. Its rapid growth over the past thirty years has reflected rising economic and population pressures within both the territory itself and its wider hinterlarfd. It will continue to be necessary for both the public and private sectors to invest heavily in the further development of housing, industry, commerce, educational and community facilities, the port and airport, transport and other services required to keep a modern city running efficiently. Since 1972, efforts have been concentrated on meeting such needs through an ambitious New Towns Programme which should be largely completed by the mid 1990's. We now need to pay more attention to the upgrading and redevelopment of the Metropolitan Area around the harbour in order to make it a better place for the majority of the population to live and work. This booklet has been produced to explain briefly why this must be done, and how it is proposed to do it. Important issues affecting the whole community are involved, and your views are, therefore, welcome. K> Hong Kong a harbour city f/g

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7 The broad GOALS In his annual address to the Legislative Council on 7th October 1987, His Excellency The Governor - Sir David Wilson had this to say: "Since the mid-seventies, more than half of the Government's capital expenditure has been devoted to building the New Towns. Inevitably, however, what has been done there has tended to show up the relatively poor environment of some of the older parts of the Urban Area. We now need to put more emphasis on improving the heavily populated areas around the harbour, where some three and a half million people live and which also provide many of the centres of employment. As we all know, parts of them are heavily congested, with dilapidated living conditions and a lack of essential amenities. The reclamations now being planned at Hung Horn, Western Kowloon, Central District and Kennedy Town will provide a real opportunity to plan a restructuring of the harbour area so as to reduce some of the present excessive building density. With this aim in mind, a special team is being set up under the Lands and Works Branch to produce a comprehensive master plan for the whole Metropolitan Area. This Metroplan will provide the basis for more detailed district planning and for individual urban renewal and redevelopment schemes." The broad goal of "Metroplan" is thus to bring about a better organised, more efficient and more desirable place in which to live and work. Metroplan will indicate new directions and forms of development in the 1990's for the combined urban areas of Hong Kong Island, Kowloon, New Kowloon, and Tsuen Wan - Kwai Chung. The plan will assume the continued use of Hong Kong International Airport, but will allow for its eventual relocation. Account will be taken of changing social needs and expectations, as well as the constraints of resource availability and overall development priorities. a corner of Sha Tin New Town

8 Junk Bay New Town taking shape!ir+'i

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10 the Kowloon Walled City soon to be cleared fr^^

11 Recent development TRENDS Hong Kong is now a modern, bustling, high-rise metropolis - a front runner among world cities. The foundations of today's city were laid in the 1950s, prior to which Hong Kong was primarily a trading port for South China. A major influx of population in the 1950s created both problems and opportunities. The main problems were acute overcrowding, the creation of large squatter settlements and immense pressures on community services. The opportunities were created by the people themselves, who, through hard work and foresight, established an exportoriented industrial base. Industrial development gave rise to a parallel expansion of the urban areas around the harbour. Kowloon grew to the north, to the west toward Kwai Chung and to the east into the areas of Ma Tau Wai, To Kwa Wan and Kwun Tong. The north shore of Hong Kong Island became virtually one completely built up area. The result of this was that, by the mid 1950s, the territory had a population of 2.5 million people, many of whom lived either in squatter communities or in overcrowded, low-rise tenements. Diamond Hill squatter area 8

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13 In the mid 1950s, the pre-war building controls were changed to permit high rise buildings. This encouraged private developers to invest in residential property for which there was an instant demand. Also, in the mid 1950s the Government embarked on a vast public housing programme for low income households. Quantity rather than quality was the primary concern. Space and resources were both at a high premium, with the result that many districts such as Mong Kok, Yau Ma Tei and Wong Tai Sin, were built to very high densities with little provision for community amenities. The 1961 Census showed that the population of the territory had reached just over 3 million people, a high proportion of whom lived around the harbour. In the 1960s, more resources were directed by Government into the expansion of water supplies, transport systems and further public housing developments in such areas as Tsz Wan Shan, Kwai Chung, Kwun Tong and Chai Wan. These efforts were also matched by the private sector which continued with the redevelopment of pre-war properties and the building of new factories at Kwun Tong, San Po Kong, Cheung Sha Wan, Kwai Chung and Chai Wan. Again, quantity took priority over quality. However, in the early 1960s new planning standards and a better system for preparing urban layouts were introduced. growing urban congestion rfjh$ i& gjt[ 0 10

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15 1972 was a major turning point for Hong Kong, for in that year a ten-year programme was launched to provide new public housing for no less than 1.8 million people. To provide the land for this new housing programme, work started on the development of six (later eight) new towns. The success of this programme is evidenced by the fact that, of a total 1986 population of 5.5 million, about two million had been provided with homes in the new towns, the design of which achieved a well deserved international reputation. Whilst public capital investment was being directed primarily at the new towns in the 1970s and early 1980s, the Metropolitan Area was experiencing other pressures of change. Private developers continued to invest heavily in residential projects, many of them of great magnitude, such as Chi Fu Fa Yuen at Pok Fu Lam, Taikoo Shing at Quarry Bay, and Whampoa Gardens at Hung Horn. The form of Central District also underwent a remarkable transformation with the construction of many new office blocks to meet the keen demand for commercial space from both local and international business firms. Continued growth in demand for Hong Kong's manufactured products stimulated the building of yet more factories in districts such as Kwai Chung, Cheung Sha Wan and Aberdeen. On top of all these was the construction of new highways, often weaving their way through areas of tall buildings, and the commissioning of the highly sophisticated Mass Transit Railway system which interchanges with a modernised Kowloon-Canton Railway. Of even greater significance was the expansion of port facilities to handle rapidly expanding overseas trade, including re-exports to and from China. A major undertaking was the construction of five container terminals at Kwai Chung. Yet another important task was the upgrading of facilities at Hong Kong International Airport to keep pace with escalating passenger and freight demands. 12 good products of private enterprise

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19 The problems this growth CREATED All these bursts of activity stimulated Hong Kong's growth rate, which has been the envy of many countries struggling with high levels of unemployment and trade deficits. Yet, whilst we can be justifiably proud of our accomplishments, there have been penalties. Much new development in the Metropolitan Area has been uncoordinated, and shortages of land have produced excessively high densities with inadequate provision of open space and other amenities. There remain pockets of decaying pre-war properties and high rise tenements built in the 1950s and 1960s which are beginning to show marked signs of deterioration. In north and east Kowloon there are swathes of old public housing estates where densities and facilities are inadequate by modern standards. Large communities of squatters still live in "green belt" areas with minimal provision of basic services. At morning and evening peak hours some major highways become clogged with traffic, and even the high capacity MTR and KCR railways find rush hour demands difficult to deal with. Elevated highways have been built within a few metres of living room windows and, in some cases, even through buildings. Other environmental problems are apparent. Many industrial areas are highly congested and sometimes create unpleasant nuisances for residents of nearby areas. The confined waters of Victoria Harbour daily receive millions of litres of only crudely treated sewage. Noise from aircraft overhead affects large parts of Kowloon, including many schools and homes. Major quarries have disfigured otherwise attractive stretches of landscape. All manner of temporary uses are scattered throughout the Metropolitan Area on sites that it has not yet been possible to develop. one example of excessive density Having demonstrated for many years that we are a community that "can lift itself up by its own boot-straps", the time has now come to tackle these problems and make a start on transforming the urban core into a city we deserve. lo

20 heavy concentration of public housing aircraft noise affects many areas

21 "... and, in some cases, even through buildings 18

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23 What is being done now to solve the PROBLEMS Recognising that the urban growth needs of the territory up to the turn of the century should be looked at comprehensively, the Government produced in 1984, after four years of endeavour, a Territorial Development Strategy (TDS). The initial results of the TDS were outlined in the booklet entitled "Planning for Growth". The TDS provides a broad framework to enable us to achieve a smooth transition from the new towns programme to a harbour-oriented development to cater for Hong Kong's roles as a major port and airport, an international business centre and thriving base for light manufacturing industry that is rapidly moving into the field of high level technology. The main elements of the TDS are continued phased development of the new towns to their designed limits of growth; major harbour reclamations to accommodate up to 400,000 people; the expansion of the Central Business District; extensions of the Kwai Chung container port; upgrading of the capacity of Hong Kong International Airport; and extensions to and upgrading of principal transport networks and interchanges. Steps taken so far to implement this strategy include Development works, now well underway, on two "third generation" new towns at Junk Bay, for 325,000 people, and at Tin Shui Wai, initially for 135,000 people; The reclamation of the Aldrich Bay typhoon shelter at Shau Kei Wan with rock and earth from nearby hills, which will be formed for major new housing development. In the process, a new typhoon shelter will first be built; The reclamation of Hung Horn Bay, partly for expansion of the KCR terminal facilities, and partly to provide new sites for commercial and residential development; The commissioning of detailed investigations for proposed major reclamations at Central-Wanchai, Green Island and West Kowloon. The general intention is to complete reclamation works by the mid 1990s; The construction of Container Terminal number 6 at Kwai Chung, which should be fully operational by mid Work on the construction of adjoining Terminal number 7 will start in 1988 foi completion by 1992/1993; The commissioning of investigations into the feasibility of providing new trunk highways between the Metropolitan Area and the north east and north west New Territories. Also, the possibility of a KCR line to link Sha Tin to the Kwai Chung Container Port is being investigated; The commencement of work in 1986 on the construction of a combined road and underground railway link under the harbour between Quarry Bay and Cha Kwo Ling. This will help relieve congestion on the existing cross harbour tunnel links; The commissioning of a second Comprehensive Transport Study (CTS-2) in 1987 to produce an updated plan of transport networks and services to meet predicted territory-wide travel needs up to the year 2001; The commencement in 1987 of a comprehensive strategy for the treatment and disposal of sewage; Finally, comprehensive land use plans have been produced for each sub-region of the New Territories, which leaves the Metropolitan Area as the final piece of the jigsaw. Eastern Harbour Crossing under construction

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25 studies are under way for the expansion of Central District on reclamation 22

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27 New forces of CHANGE Many of the currently planned works will affect the Metropolitan Area and their successful implementation will be a real challenge. There are also new forces at work which will present opportunities for changes and improvements to the urban structure. In particular In 1986, the Housing Authority produced a new long-term Housing Strategy to provide for the housing of all squatters, the redevelopment of sub-standard public rental housing estates and the supply of a greater element of home ownership housing; Annual limits on the sale of new sites by Government encouraged private developers to make greater use of the redevelopment potential of existing sites in the urban area; In 1988, the Land Development Corporation was set up to undertake, promote and facilitate the comprehensive redevelopment of areas of obsolete private housing which private developers have found difficult to tackle, mainly because of land assembly problems; Long term projections of overseas trade show that it will be necessary to embark on further major expansion of container terminals and other port facilities. That, in turn, will call for a new approach to the provision of land for associated industrial and commercial development; The capacity of Hong Kong International Airport will need to be increased to satisfy rapidly increasing demands for both passengers and freight. That, in turn, will require additional hotels and improvements to transport systems. Later on, it may be necessary to relocate the airport, which raises the question of how best to redevelop the Kai Tak site and districts at present affected by airport height controls. Whilst many new projects must go ahead as quickly as possible, sporadic development would compound many existing problems. The new forces of change should be used as a tool to help achieve improvements in the Metropolitan Area. the need for new airport facilities is being furthe reclamation at Hung Horn Bay

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29 What kind of \~ I T Y should we have? The kind of city we should have depends greatly on the specific aims that it is considered Metroplan should achieve. It is proposed that Metroplan should enhance Hong Kong's role as an international port and airport; as an international business, finance and tourist centre; as a centre for a diverse range of light manufacturing industry and as the centre of government for the territory; provide opportunities to satisfy, as far as practicable, housing needs according to what people can afford and their locational preferences; achieve a more balanced distribution of jobs relative to population concentrations, locational preferences of new enterprises and the ease of travel; sort out land use patterns to create a more acceptable urban environment. This may involve:... relocating those activities which create severe environmental problems;... reducing population densities by such means as spreading development onto adjoining harbour reclamations and comprehensive urban renewal;... providing properly located and convenient community facilities which aim at new town standards; create an urban form that will foster a sense of community identity; conserve and enhance major landscape attributes and important heritage features; provide a multi-choice, high capacity transport system that is financially viable and energy efficient; produce a strategy that can be carried out in a co-ordinated but flexible way, taking account of changing circumstances. Another very important question - how do you feel about these aims? 2o Hong Kong a thriving city with exciting prospects

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31 How Metroplan is to be PREPARED Your views and OPINIONS The Metropolitan Area is a highly complex place. It has many problems, but it works well and has many features that are worth conserving. So, in looking for ways to see what should and can be done to make it a better place, a careful approach must be taken to ensure that we don't "upset the apple cart". The first step in the process has been to identify the broad goals and specific objectives of Metroplan. These have already been mentioned in this booklet. In parallel, much thought has been given to preparing an "Inception Report" which sets out the technical processes involved. Then follows lengthy and careful analysis of important issues at both district and city wide levels. This will produce a summary of needs and key issues to be tackled later by means of "action plans" and programmes. At the same time, work will be done to identify the main constraints on, and opportunities for, new development a bit like searching for a needle in a haystack. The results of this work will be put together in another booklet for public consultation. The final stage will be the creation of ideas as to the alternative kinds of city which could be created. These ideas will be the output of a Steering Group which will also take account of the views expressed by the community. The Metroplan team of planners, architects, statisticians and technicians will then translate the Steering Group's broad ideas into a series of outline land use and transport plans. An initial range of options will be produced first and then narrowed down to a limited number of preferred plans. Each preferred plan will be subjected to rigorous testing to measure the, extent to which it meets the specific objectives and broad goals of Metroplan. A third booklet will then be produced for public consultation. After analysing the views received, a "Final Plan" will be produced showing outline works and statements of policy. Action plans and programmes will be subsequently produced. The entire process of producing Metroplan is expected to take about 24 months and will be undertaken in conjunction with the formulation of a Port and Airport Development Strategy (PADS). In the meantime, already well established administrative and planning systems will continue to deal with ongoing and imminent new development projects within the context of approved urban layouts. Should you wish to express your views and opinions on the broad goals and specific aims of Metroplan, and on any another related matters, you should send your written submission to "Metroplan" Lands and Works Branch, General Registry, 20th Floor, Murray Building, Garden Road, Hong Kong. Please give your name, address and signature, together with your official identification (I.D. Card number or the chop of your organisation) so that acknowledgments may be made. 28

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37 Please return this book by date due Date Due 20 JUL2005

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