Greenbelt or Brownfield? An Introduction and a Cost-Benefit Analysis

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1 Greenbelt or Brownfield? An Introduction and a Cost-Benefit Analysis Edward Yiu Legislator Apr 5, 2017

2 Definitions of Green Belts Origin Ebenezer Howard s (1898) Garden City In the 1930s the Campaign to Protect Rural England (CPRE) campaigned for a clear barrier of undeveloped land against ribbon development and urban sprawl. Definitions a narrow strip of parkland more or less encircling part of a built-up metropolitan or large urban area (Osborn, 1969, p.182) a zone of land around the city where building development is severely restricted (Amati and Yokohari, 2006, p. 125) tings/ruraladvisorypanelminatt pdf The GB zone covers mainly slopes and hillsides, most of which is naturally vegetated. Some GB areas are also designated as Country Parks. (TPB PG-NO. 10)

3 London s Approach to the Green Belt Importance of GB 1. England s 14 GB covers nearly 13% of England, 2. Provide a breath of fresh air for 60% of the population 30 million people living in the urban areas within GB boundaries 3. New surveys show that 95% of people value the beauty of the GB 4. 58% have visited for leisure in the past 12 months Fresh Approach to the GB 1. Recognise and protect the Green Belt 2. Invest in and improve the Green Belt 3. Connect and network the Green Belt Approach to Development Brownfield First Policy CPRE (2010) Green Belts: a greener future,

London s Greenbelts The overall area covered by the designated Green Belt has doubled since 1978.

4 London s Greenbelts The overall area covered by the designated Green Belt has doubled since In some cases this incorporates expansion of Green Belt intended to offset the loss of areas to new development.

5 Planning Purposes of GB The main purposes of the GB zone include the following: To conserve existing landscape features, areas of scenic value and areas of recognised fung shui importance; To define the outer limits of urbanized districts and to serve as a buffer between and within urbna areas; and To provide additional outlets for passive recreational uses. (TPB PG-NO. 10)

6 Planning Intentions of GB To primarily conserve the existing natural environment amid the built-up areas/at the urban fringe, to safeguard it from encroachment by urban type development, to define the limits of urban and sub-urban development areas by natural features, to contain urban sprawl as well as to provide passive recreational outlets, with a general presumption against development. Sources: OZPs S.3.5.2, Ch. 10 Conservation, Hong Kong Planning Standard and Guidelines, Aug Edition, HKSAR Government

7 Green Belt Example in HK Urban Green belt Countrypark

8 Current Greenfield Area in HK Type of Greenfield Total Land Area (hectares) (ha) Green Belt Village Type Development Agriculture Site of Special Scientific Interest Conservation Area Coastal Protection Area 827 Country Parks

9 Various Conditions of GB

10 Various Conditions of GB

11 Appropriateness of Rezoning GB for Residential Use GB - Conservation - City Boundary - Recreational Uses Are the original functions of the GB sacrificed? Residential Use? Rezoning

12 Principles in Rezoning GB GB should not be rezoned unless: 1. It does not serve the required functions of a GB devegetated, deserted or formed land; 2. The new use can better serve the required functions upgraded to SSSI, countrypark, etc. GB policy should be reviewed by a long term strategy of territorial planning, rather than a piecemeal approach of rezoning.

13 Development Bureau s Approach Phase I Devegetated Deserted Formed Land Review Standard Phase II Area > 0.5ha, Slope < 20⁰ Next to developed area Next to transportation means Lower value in limiting boundary and conservation 局長隨筆

14 Private Applications for GB Rezoning were mostly Rejected Application for GB Rezoning ( ) by districts District Approved Rejected Total Rejection Rate HKI % Wong Lai Chung % North Point % Pokfulam % Peak % Quarry Bay % KLN NT % SS/Fanling % Tsuen Wan % Tsuen Wan W % Tai Po % Shatin % Ma On Shan % Kwun Tong S % Sai Kung % Lantau I S % Tuen Mun % Yuen Long % 全港 % 30 out of 37 applications were rejected (81%)

15 否決原因 Rejection Reasons Rejection Reasons 減少為應付丁屋發展需求的土地供應 2 危害完整的土地規劃在規劃研究完成前改劃為時過早 9 涉及政府土地 1 不良先例資料不足影響休憩用地的供應 5 影響政府機構或社區設施 5 影響城市設計 / 視覺效果 8 山泥傾瀉的風險 1 影響環境 11 影響污水 / 排水 / 基礎設施 10 影響交通 10 影響景觀 / 砍樹 11 發展過度密集 10 與綠化地帶的規劃意向相違背 15 Violation of the planning intentions of GB 10 Set bad precedents Insufficient Information Number of Applications

16 Case Study

17 Performing the Functions of GB Functions GB Conservation Woodland, next to countrypark, important habitat Buffer Limiting urban encroachment into countrypark Passive Recreation Popular hiking trail

18 Buffer between a countrypark and the developed area

19 Ecological Value of GB Limnonectes marsh frog Polypedates_megacephalus

20 Public Opinions on GB Study Area: Method: Period:Mid Jun 2014 No. of Sample: 312

21 Public Opinion Survey Results A. Conservation Function B. Limit Urban Sprawling C. Passive Recreational Function 2.9% 0.3% 1.3% 0.3% 13.1% 1.3% 96.8% 有無 19.9% 無意見 78.5% 有無無意見 85.6% 有無無意見不一定

22 Opinion of GB Rezoning? Agree or Disagree with the Govt s GB Rezoning Application? 1.6% 74.0% 22.8% 6.7% 贊成發展作公營房屋贊成發展作私營房屋不贊成無意見 Agree to build public housing Agree to build private housing Disagree 百分比 (%) 80.0% 70.0% 60.0% 50.0% 40.0% 30.0% 20.0% 10.0% 0.0% 會破壞生態不贊成的原因 67.5% 72.7% 減少綠化 / 公共休憩空間 39.0% 39.0% 危害郊野公園城市會過度擴張 / 發展 19.5% 其他 1.7% 沒有列明不贊成的原因 67.5% 72.7% 39.0% 39.0% 19.5% 1.7%

23 百分比 (%) Opinions on Other Land Supply 70.0% 60.0% 59.3% 50.0% 40.0% 30.0% 20.0% 10.0% 12.2% 30.4% 40.1% 7.4% 18.9% 4.2% 5.4% 0.0% 市區重建填海重建政府機構 / 社區用地 ( 如學校及社區會堂 ) 發展棕土 ( 如露天貨櫃場及停車場 ) 發展岩洞 ( 如搬遷沙田污水處理廠 ) 開發鄉郊土地發展綠化地帶增加土地供應以配合未來發展的方法 59.3% 12.2% 30.4% 40.1% 7.4% 18.9% 4.2% 5.4% 其他 UR Rec GIC BF Car Rur GB Oth

24 Opinions on GB Rezoning Application GB should be protected? 7.1%1.6% 91.3% Should 應該 Should not 不應該無意見 GB rezoned to private housing? 1.0% 12.8% 86.2% 贊成不贊成無意見

25 What is NT Brownfield? Underused industrial and commercial facilities which was formerly greenfield

26 Why NT Brownfield Should be Developed? Dr Ng Cho-nam, a former town planning board member and an associate professor of geography at the University of Hong Kong: In a city where the value of land is so high, it is amazing such a wasteful use of land [for brownfield] still exists. The government needs to take into consideration that society is paying more for inefficient land use and pollution, industrial buildings and logistics centres along highways would be a cleaner, tidier and more efficient way to house the brownfield businesses. Jacky Lau Yiu-shing, director of the Hong Kong Recycle Materials and Reproduction Business General Association up to 80 per cent of the recycling operations on brownfield sites were importing garbage from overseas, taking away valuable materials and dumping the rest of the garbage into landfills, which he said should not enjoy any support and deserve penalty for further pollution.

27 Why Brownfield First? Win-Win-Win Solution for HK 1. Clean the polluted area 2. Provide land for development 3. Rectify Melhado Case drawback

28 History of NT Brownfield in HK Non-agricultural developments, such as container ports, are carried out on agricultural land in the New Territories since the 1970s.

29 Area of NT Brownfield 1,192 ha For Agricultural Use Now Container Ports, etc 29

30 Background of the Cause 1898, the New Territories was leased to the British Block Crown Leases were granted to replace the China one A Schedule in the BCL shows the uses and conditions 30

Melhado Case The Privy Council held that the Schedule showed the current uses and not the permitted uses Town Planning Ordinance was enacted in 1939 for urban areas only OZP did not include the New

31 Melhado Case The Privy Council held that the Schedule showed the current uses and not the permitted uses Town Planning Ordinance was enacted in 1939 for urban areas only OZP did not include the New Territories The govt lost the case in 1983, but did not seek any law amendments for years (Attorney General v Melhado Investment Ltd. [1983] HKLR 327 An amendment bill was submitted to LegCo only in 1990 And was passed in 1993, but no enforcement power 31

32 Further Amendments of TPO Add DPA in the NT to introduce enforcement power But no retrospective power For sites zoned with OZP but never DPA, PlansD would have no enforcement power on them overage_enlarge.html 32

33 My First Private Bill in LegCo Try to provide enforcement power to PlansD on non-dpa sites

34 Distribution of Uses in NT Brownfield

35 Accommodating BF Operations in High-Rise Building About 500 ha brownfield can be accommodated in High-Rise Bldg By means of a plot ratio x 3 It reduces 340+ ha brownfield (it satisfies all the extra requirement of residential land) Current Uses Area (ha) Can it be accommodated in High Rise Bldg? Storage, Recycling Partially (say 200) Container Port Partially (say 150) Carparking Yes Others Unknown Total

Total Industrial Land Area in HK (2015) Industrial Land Area = 9.5% of developed area (268 sq. km) 2.3% of total territory (1,014 sq. km) 25.46 million s.m. It Includes industrial land, industrial estate, warehouse and open storage.

36 Total Industrial Land Area in HK (2015) Industrial Land Area = 9.5% of developed area (268 sq. km) 2.3% of total territory (1,014 sq. km) million s.m. It Includes industrial land, industrial estate, warehouse and open storage. IND (ha) CW 0.62 E 6.19 S 9.88 WC 0 KLS 0 KT 0 SSP 4.44 YTM 1.85 WTS 0 ISL 0 KT 46.6 N 56.8 SK 0 ST TP 0 TW TM YL Total

37 Current Industrial Land Area Site Area (ha) Developed GFA (sm) Vacant GFA (sm) Private Flatted Factories ,900,000 (IFA) 845,000 (5.0%) Private Storage 3,600,000 (IFA) 151,200 (4.2%) Private Industrial/Offices 580,000 (IFA) 39,440 (6.8%) Tsing Yi Special Industrial Area Tai Po IE, Yuen Long IE, TKOIE 217 3,000,000 (Developed 53% of pr2.5) Cyberport 33 0%, 1%, 7% Hong Kong Science Park HKSP ,000 62,700 (19%) InnoCell 0.28 Sub Total Other Storage and Industrial Area 1, Total Industrial Land Area 2,

38 New and Planning Industrial Land Area Site Area (ha) To be Developed GFA (sm) Remarks Expansion of Tai Po IE, Yuen Long IE, TKOIE 2,495,500 Residual GFA Lak Ma Chau Loop 87 Co-dev w SZ Liantong/Heung Yuen Wai 56 Wang Chau IE KTN NDA, Hung Shui Kiu NDA, Yuen Long South NTN, ELM Lam Tei Quarry, Tsing Yi, Ma Liu Shui, Lung Kwu Tan Lung Kwu Tan reclamation 200 Under P&E study Science Park Expansion Programme SPX ,

39 CBA A Case Study Lau, T.L. (2015) Cost-benefit analysis of residential development in brownfield and greenfield, FYT, GRM, CUHK (supervised by CY Yiu) 39

40 CBA Framework Lau, T.L. (2015) 40

41 CBA: Brownfield v Greenfield Lau, T.L. (2015) 41

42 Economic Benefits Comparison Lau, T.L. (2015) 42

43 Social and Environmental Benefits Comparison Lau, T.L. (2015) 43

44 Benefits Comparisons Lau, T.L. (2015) 44

45 CBR Comparison Brownfield Greenfield Economic Cost $2,204,405,090 $1,769,460,000 Economic Benefit $7,932,049,200 $3,054,371,407 Economic CBR 1:3.60 1:1.73 Lau, T.L. (2015) Brownfield/Greenfield Economic CBR Ratio 2.08 Total CBR Ratio

46 Brownfield First Policy in the UK and US

47 Brownfield First Policy in the UK and US

48 Would HK Govt Adopt Brownfield First Policy? Govt starts a 2-year survey on brownfield Govt emphasizes the importance of brownfield operations to the economy of HK Sites for reallocation of brownfield operations are required No freezing survey nor any actions of stopping the expansion of brownfield, as the govt regards them legal and good for the economy unlike squatters, there is at present no government policy to tolerate the temporary existence of brownfield sites that contravene the law or lease conditions. Hence, there is no need for the Government to carry out survey for brownfield sites akin to the 1982 SCS.

49 The End comments are welcome. Enquiries to: 49

The Past, Present and Future Land-forming in Hong Kong

The Past, Present and Future Land-forming in Hong Kong 27 April 2013 Thematic Series Engineering Advancement in Hong Kong Land-forming (HKIE and HKIP) Planning Department Population: 7.07 million (2011)