Development Outlook
Land Use Planning
From Engineering Development Department to
Civil Engineering Department
2. Rose Garden Project
Airport Core Programme
West Kowloon Reclamation
ļ
!
Territorywide Development Strategy
Part IV Multi-Nucleus Expansion (1982-2003)
3. Port Development
Enhancement of Logistic Capabilities
New Port Facilities
4. Environmental Protection
Environmental - Friendly Fill Material
Disposal of Dredged Mud
Improvement of the Shing Mun River
5. Tourism Facilities
Hong Kong Disneyland
6. Summary
Development Outlook
Prodded by deficient land reserves and a soaring population, the administration focused its efforts on exploiting additional land resources and this spurred further economic development. Between the 1950s and the 1980s, the official urbanisation policy centred on the twin objectives of addressing the housing crisis and promoting industrial development. From 1966 onwards, public land formation works were extended to the New Territories. Districts bordering the urban Kowloon Peninsula and New Kowloon such as Tsuen Wan and Kwai Tsing were designated for priority development232. The government attempted to synchronise the pace of development in the various districts to ensure better co-ordination between the different engineering projects, as well as initiating long-term planning for transport links between the new towns and the urban areas. Simultaneously, it aggressively improved the port facilities by expanding Kai Tak Airport and building the Kwai Chung Container Terminal, in order to enhance the
competitiveness of the Hong Kong port.
In the 1980s, the rapid population growth in Hong Kong showed no sign of abatement, with the population figure climbing from 5,000,000 in 1981 to 5,500,000 in 1986. In the five years between 1986 and 1991, the growth rate slacked off and the population increased by just 170,000233. For the first time after the war, the population grew at a slower pace. The growth rate picked up sharply soon after and the population broke through the 6,000,000 threshold in 1996, registering a figure of 6,310,000234. By 2001, Hong Kong had a population of 6,710,000235.
In the late 1970s and the early 1980s, China implemented its economic reforms in earnest and Hong Kong became an important gateway into the China market. As a result, Hong Kong adjusted its economic role in the Asia-Pacific region and achieved phenomenal growth in re-export trade. In December 1984, the Chinese and British governments signed the Sino-British Joint Declaration and agreed on the reversion of Hong Kong to Chinese sovereignty on 1 July 1997. This marked the end of British
197
Challenges for an Evolving City
km
COMMITTED EXTENSION- TO CONTAINER PORT
BASE TRAIN SALA
THIRD
A
----
TSING YI CROSSING
SEWAGE TREATMENT WORKS
污水蒸澧酒
Kosi
THIS AREA FOR NON-RESIDENTIAL USES
菲住宅用途
A
70
*
Scale 1:75 000 IMA
4.1
198
CROSSING
WEST HARBOUR *
香港西面之波,等投範
Pokfulam Resory-u
14
km
千米
N
M
無下海路*
A
ONNEL..
KOWLOON/
九龍
HONG KONG
香港
Aberdeen Reservoir
***
ABERDEEN TUNNEL
UNG' HOM
@Min
BY-PASS
TATE'S CAIRN
TUNNEL
*
KAI TAK
AIRPORT
KWUN TONG BY-PASS het sond
KCR TERMINAL EXPANSION
九廣佀路蟌站調建
IHARBOUR TUNNEL
CROSSING
EAST HARBOUR CROSSI “海潘輋面之渡 等設施
Ta Tam Reservoirs
NEF 30+
NEF 30+
t
BREAKWATER
防波堤
PENG CHAU 坪洲
GREEN ISLAND RECLAMATION
青洲填海區
TSING YI 青衣
CONTAINER PORT 貨櫃碼頭
WEST KOWLOON ̈· RECLAMATION
西九龍填海區
ONG KONG
KOWL
香港島
CENTRAL-WANCHAI
RECLAMATION
中環及灣仔
塡海區
NG HOM BAY
LATION
LEGEND
圖例
Strategic growth
策略性增長區
areas
A
New typhoon shelter (alternatives under investigation)
4.2
新避風塘( 可供選擇之地區在考慮中 )
Trunk road &
route number
-- 公路及編號
Green Island Reclamation -
A
for 200 000 persons
靑洲填海區 可容二十萬人
Railway MTR
地下鐵路
Railway KCR
九廣鐵路
Aircraft noise
飛機噪音預計度
exposure forecast NEF 30+
contour - 30 & above
等量綫:三十及以上
新灣仔填海區
—
可容六萬人
-
for
MAJOR DEVELOPMENT PROPOSALS :-
主要發展計劃
Possible future extension to container port
貨櫃碼頭之可能擴展區
West Kowloon Reclamation
A
2
for 90 000 persons 西九龍填海區
-
可容九萬人
Central Reclamation for new commercial
offices & govt./cultural uses
中環塡海區 ·供新商業辦公室及政府/ 文娛用途
Extension of Wanchai Reclamation
for 60 000 persons)
Hung Hom Bay Reclamation
commercial/govt. & for 17 000 persons
紅磡灣填海區 — 供商業/政府用途並
可容一萬七千人
For 16 000 persons
8
可容一萬六千人
1985 preliminary development plan of Hong Kong's core regions.
1985 preliminary urban development strategy on population distribution and transport network expansion.
colonial rule in Hong Kong. There was no longer a distinction between the areas north of
Boundary Street and south of the Shenzhen River on the one hand, and the land on Hong
Kong Island and south of Boundary Street. The distinction between leased- and ceded-territories
was abolished. As such, the intention of keeping the New Territories as the resource hinterland
for the urban areas lost its relevance.
Hampered by limited land resources, dilapidated pre-war buildings co-existed with newly built public housing developments in old areas that were already overcrowded before the Second World War. These densely-packed public housing estates were desperately short of recreational space and leisure facilities. The flyovers and roads built to mitigate traffic congestion were sometimes positioned just metres away from the windows of the housing
Part IV Multi-Nucleus Expansion (1982-2003)
199
Challenges for an Evolving City
Cartography by Survey & Mapping Office. Lands Department
© Copyright reserved - reproduction by
permission only
Series AR/9/RD Edition 4 1996
ISBN : 962-567-030-0
DEEP BAY
Light Rail Transit
operational lg 1989
Nim Wan
Black Point
LAU FAU
SHAN
TIN
WENLONG
TUEN MUN
\LUNG KWU TAN
Tap Shek
A 583m CASTLE/ PEAK
1957
Kok
PILLAR POINT
Pearl
Island
TẠI LÀM CHUNG
ISING
TÙNG TÀU
Roofe 3 under "Construction
MA
1977 - 1996
WAN
CHANNEL
KAP SHUI MUI
TAI MO
SHAN
957 m
Tsig
KW. CHUNG
1965
Bar C --ervoir
RECLAMATION & DEVELOPMENT IN HONG KONG
1968
SRUEN
TAI PO
TAI PO KAU
MARDHUR
Shing Mun Tunnels
operational in 1990
▲ 702m
Sha Tin Race Cour completed in 1978
MA ON SHAN
KUNG
Larn Tunne- Tonal in 199
1931
LION ROCK ▲ 495m
EMTR
WLOON
'Tsuen Wan Line, #öpirational irl 1982.
HOR
HAREC
Eastern Harbour
A operational i
Peng
KOWLOON
Western Harbour Crossing
under construction
VICTORIA
NGONG
PING
Chek Lap Kok
New Birtil
TUNG
CHUNG
LANTAU
Railway under cons
North Lantau Expressway un
TAI HO
struction
Discovery
Bay
YAM O
Chau
TAI SHUT
HANG
ISLAND
MUI WO
200
1963
▲ 934 m
LANTAU PEAK
up to 1887
Cheung Chau
552m A
VICTORIA
·PEAR
MIRS BAY
C
1978
High Island
ROCKY HARBOUR
PORT SHELTER
TSEUNG KWE
fseung K operati
890
JUNK BAY
Kwun
tional in 1989
MTR
|_opera)
RED
Portal in 1982
KONG) ISLA
FU
1877
HONG ABERDEEN 1932
Ap Lake Ba
Lamma Island
1917
Scale 1
200 000
km 0
2
4
6 km
+
1888-1924
Kowloon-Canton Railway -
operational in 1950
1925-1945
4.3
Coastline at Nov, 1996
Proposed Coastline
Coastline before 1887
Coastline & Reclamation between above dates
Built-up Area
Main Road
Tunnel
Railway
Light Railway Proposed Road
Proposed Railway
TAI LONG
7.000
WAN
6 000
5.000
Hectares
RECLAMATION
4.000
3.000
2 000
1 000
0
1887
1924
1945
Maps and graphs shown are for general reference only
: 1968-1976
Kowloon-Canton Railway Terminal moved to
1 Hung Hom in 197
Container Terminal reclamation completed in 1976
Cross-Harbour Tunnel,
operational in 19721
Airport Runway extension completed in 1974
1946-1967
Lion Rock Tunnel
operational in 1967
Kai Tak Álpot. reclamation-
completed in 1957
Part IV Multi- Nucleus Expansion (1982 - 2003)
Reclamation and Development in Hong Kong in 1996.(The map reproduced with permission of the Director of Lands. © The Government of Hong Kong. SAR. Licence No G07/2004.)
201
Challenges for an Evolving City
4.4
Rocks were transported to West Kowloon Reclamation Area by barge to build the breakwater. Opposite the reclamation area is the waterfront of Central and Wan Chai, separated by
Victoria Harbour.
4.5
Inert construction and demolition material was collected by hopper barge at a barging point. (1999)
#14117
#SB181
21411V
Part IV Multi-Nucleus Expansion (1982-2003)
units. In certain instances, they even cut right through the heart of some estates. The serious waste disposal, noise and air pollution problems caused by congested industrial districts were attributed to undue emphasis placed on the rapid development of industry to the detriment of the environment. Residential housing and schools located in industrial areas were often adversely affected by the nearby surroundings. From the 1980s onwards, when the government devised urban plans to meet economic development needs, it
not only had to consider the two primary goals of reducing population pressures in the urban areas and accelerating industrial development, but it also had to make integrated and longer-term assessments of the development prospects. This ushered in a new phase of town planning in Hong Kong.
In the mid-1980s, the administration reformulated the territory's development framework. In addition to expediting the development of the New Territories, it adopted port expansion as the key impetus to drive economic growth. In 1986, the government unveiled the Territorial Development Strategy. Revisions were made in 1988 in respect of different types of land use planning which included the housing demand, the development of industrial land, the construction of office buildings and hotels, the use of countryside
areas, and the conservation of areas of high landscape and ecological values. On the one hand, the problem of mismatched housing demand and supply had to be tackled head on. On the other hand, a review was required on a host of issues that affected the overall social development, in order to support the rapid economic growth in South China. Those issues included transportation services, the future role of industry, development densities and environmental beautification. Hong Kong aimed to raise its international ranking in the spheres of commerce and finance, information services, tourism, re- export trade and manufacturing, while conserving its precious natural landscape, antiquities and historical monuments. Endeavours were also required to improve the living environment by tackling the pollution problems of air, water, noise and waste treatment236.
Land Use Planning
In 1985, the government conducted district-by-district preliminary studies on the outlook of territorial development and identified the following developable areas: Green Island off the west coast of Hong Kong Island, West Kowloon, East Lantau, Lau Fau Shan, Tsim Bei Tsui, Yuen Long, Wu Kai Sha and Tseung Kwan O. The development of these areas could yield an estimated 4,400 hectares of land. The authorities then carried out further analyses based on population distributions and offered two development alternatives, both capable of supporting a large population:
1. Extensive development of Northwest New Territories (population capacity
480,000 people) and the areas west of the harbour (capacity - 370,000 people); and
2. Extensive development of the areas west of the harbour (population capacity -
900,000 people).
The development of districts lying to the west of Victoria Harbour was central
to both options. Hence, the West Kowloon and the Central-Wan Chai reclamation works were designated as top priority projects in the mid-1980s. In 1993, the authorities undertook a review of the status of urban development and formulated a long-term development plan for five priority districts until 2011: Northwest New Territories, Northeast New Territories, Southwest New Territories, Southeast New Territories, and
the Metro area.
1. With improved cross-border transport arrangements and expanding trade between China and Hong Kong, Northwest New Territories has grown in importance. Following the completion of development works in Tuen Mun, Yuen Long and Tin Shui Wai (Phase I), the second phase of development of Tin Shui Wai, which borders Shenzhen, is a key development project. Improved transport services such as a commuter rail line (West Rail) that links Northwest New Territories with Yuen Long and Tsuen Wan, and the future Tin Shi Wai-Shenzhen ferry services across Deep Bay, highlight the bright future of Tin Shui Wai as a service centre supporting the China-Hong
202
203
Table 4.1 Overview of Reclamation Works (1980-1997)
Part IV Multi- Nucleus Expansion (1982 - 2003)
Year
Reclamation Area
(unit: hectare)
Area Reclaimed
1980
Siu Chai Wan (4), Sai Wan Ho (1), Quarry Bay Public Filling Area (2), To Kwan Wan Public Filling Area (4.8), Sham Shui Po Public Filling Area (3), Tai Po Industrial Estate (30)
44.8
1981
Western District (2), Aberdeen (0.5), HMS Tamar eastern dock- yard (1.5), Quarry Bay Public Filling Area (4.5), Sam Ka Tsuen in Kwun Tong (0.6), Tai Po Industrial Estate Phase III (0.5)
9.6
4.6 Reclamation in progress at Stonecutters Island.
1982
Western District (6); Sai Wan Ho, Aldrich Bay and Lei Yue Mun (total: 6.1); Quarry Bay Public Filling Area (12), Cheung Sha Wan (4), Tai Po Industrial Estate Phase III (11), Aberdeen (1.5)
40.6
1983
Ap Lei Chau (1.5); Kowloon Peninsula west (4); Tai Po Indus- trial Estate (5); MTR Island Line, roads, sew age treatment works, wholesale fish markets (total: 9.5)
20.0
1984
1985
1989
Cheung Sha Wan (4.5), Stonecutters Island north (6), north shore of Tai Po Hoi (10), north eastern shore of Hong Kong Island (22)
Aberdeen (0.3), Ap Lei Chau (1.5), Aldrich Bay (1), Chai Wan (5), Telegraph Bay (2), Cheung Sha Wan (8), Tai Po Industrial Estate Phase III (7), Stonecutters Island north (2.8)
Telegraph Bay (20)
42.5
27.6
1990
Siu Sai Wan (56)
1990-1994
Hung Hom Bay (36)
1990-1997
West Kowloon (334)
1992
Aldrich Bay (28)
1993
Belcher Bay (10)
1993-1996
Central Reclamation Phase I - area near Blake Pier (20)
Central Reclamation Phase II - HMS Tamar site (5.3)
20.0
56.0
36.0
334.0
28.0
10.0
25.3
Kong cross-border trade. To cope with increasing cross-border business activity between China and Hong Kong, the administration will need to make available ample land for the development of warehouses, container terminals, high-tech industrial
estates and business parks. Within Northwest New Territories, Kam Tin Market has
the potential of developing into a new town, while San Tin and Lok Ma Chau are capable of turning into multi-mode transport interchanges to serve the Pearl River
Delta.
2. The Northeast New Territories region is not a designated high growth area. The districts of Sha Tin, Tai Po, Fanling and Sheung Shui will continue to function as new towns. Suburban areas such as Sai Sha and Pak Shek are suitable for the development of low-density housing. The rural hinterland of northeast New Territories is to be
developed into a nature reserve.
3. The region of Southwest New Territories refers to North Lantau and includes Chek
Lap Kok Airport, southeast Penny's Bay and Tung Chung New Town. Other areas
on Lantau such as Tai Ho could serve as the new town centre, with South Lantau and the outlying islands designated as a nature reserve.
4. The Southeast New Territories region is the extension of Tseung Kwan O district. Tseung Kwan O will follow Sha Tin and become an extension of the main urban areas, with the rural hinterland in Sai Kung set aside as a nature reserve.
5. The priority projects undertaken in the Metro area include the Central-Wan Chai Reclamation, the West Kowloon Reclamation, an expressway system, a western cross-harbour tunnel (Western Harbour Crossing), and an MTR line (Airport Railway) linking Lantau to Central.
The Green Island reclamation area was earmarked for strategic growth. As port activity shifted westwards, the central business district also needed to extend westerly along the northern shore of Hong Kong Island. The proposed development of Green Island was intended to ameliorate traffic jams and form part of the expanded business district of Central, as well as becoming a residential district for city executives.
1993-1997
Airport at Chek Lap Kok (1,248) Tung Chung New Town (67)
Total
Source:
Hong Kong, Hong Kong, Government Printer, 1981-2000.
1,315.0
2,009.4
This reclamation plan was later shelved due to concerns over excessive reclamation in Victoria Harbour. Instead, Kai Tak Airport was to be developed into a commercial/ residential area, while the south side of Hong Kong Island was allowed to preserve its suburban character237.
The extent and timing of reclamation works undertaken since 1980, detailed
in Table 4.1, based on information provided in the yearbooks.
Reclamation projects undertaken in the 1980s still concentrated on the city
nucleus, with limited land reclaimed on eastern Hong Kong Island, Western District,
and the eastern and western shores of the Kowloon Peninsula. Sizable reclamation
Challenges for an Evolving City
204
205
Part IV Multi-Nucleus Expansion (1982-2003)
ГГГ
4.7 Reclamation at Sham Shui Po and Cheung Sha Wan near completion.(1980s)
ГГГГ
ГГГГ
ГГГГИ
ГГГГГ
works were carried out in the New Territories, with the Tai Po Industrial Estate project as a prime example. In the 1990s, with the commencement of the Airport Core Programme, the bulk of reclamation works revolved around the new airport, with 1,248 hectares of land reclaimed for Chek Lap Kok Airport, and another 334 hectares created by the West Kowloon Reclamation. These two mega projects accounted for 79 per cent of the total land reclaimed during the 1980-1999 period. Between 1980 and 1999, over 2,000 hectares of land was gained through reclamation. Since the beginning of the twenty-first century, the government has taken a cautious approach towards reclamation in the face of considerable community opposition.
From Engineering Development Department to
Civil Engineering Department
To meet the rapid development of the territory, the Public Works Department was restructured into the Lands and Works Branch in April 1982 and its five principal works units became fully-fledged independent departments. The Engineering Development Department kept its English name but it was reorganised into seven offices: Headquarters, Civil Engineering Office, Geotechnical Control Office, Electrical and Mechanical Office, Highways Office, Mass Transit Office and Railway Development Office. The department was responsible for the co-ordination of land resource development; port infrastructure; planning for roads, drainage, electrical and mechanical works, as well as the management
and maintenance of all the above infrastructural facilities. In August 1982, the Electrical and Mechanical Office was detached from the Engineering Development Department and became an independent department. The Highways Office was upgraded to become the Highways Department in 1986, charged with the responsibility for supervising transport networks and the construction and maintenance of roads throughout Hong Kong. On 1 June 1986, the Engineering Development Department was reorganised and renamed the Civil Engineering Services Department. Organisationally, it consisted of four major units: Headquarters, Civil Engineering Office, Geotechnical Office and Railway Development Office. The Civil Engineering Office comprised the Drainage Branch and the General Engineering Branch. Under the aegis of the General Engineering Branch were the Port Works Division and the Development and Airport Division. In 1990, the Railway Development Office was transferred to the Headquarters of the Highways Department. The Drainage Branch gained its independence in 1989 and became the Drainage Services Department, responsible for the design and maintenance of all the sewerage systems in Hong Kong. In 1991, the Civil Engineering Services Department was renamed the Civil Engineering Department in English while retaining its Chinese name. The Mines Division of the Labour Department was transferred to the Island Branch of the Geotechnical Engineering Office. The Director of Civil Engineering concurrently acted as the Commissioner of Mines. The Mines Division was responsible for the manufacture, management, transportation and storage of explosives, as well as the enforcement of legislation and safety regulations with regard to the mining and
use of explosives.
In 1996, the Civil Engineering Department consisted of two main arms: Civil Engineering Office and Geotechnical Engineering Office. The Civil Engineering Office underwent a reorganisation and comprised three branches: General Engineering Branch, Project Management Branch, and Port and Airport Development Strategy Branch. The General Engineering Branch co-ordinated the work of the Development and Airport
Division, the Port Works Division and the Technical Services Division. Under the
207
4.8
4.9
Settlement is reduced from 5-10 years to just 3 months with the use of band drains to draw off water from the marine mud, representing a recent breakthrough in reclamation technology. (photograph taken in Tuen Mun in 1997)
Insertion of 4-inch band drains into the seabed. The small holes on the surface of the drains accelerate water discharge from the marine mud through capillary action. (photograph taken in Tuen Mun in 1996)
4.10 Trailer suction hopper dredger was deployed at the West Kowloon Reclamation to rainbow marine sand.
4.11 Performance of traditional offering ceremonies before work commencement. Ir Lo Yiu-ching, then Director of
Civil Engineering, officiated at the groundbreaking ceremony of the West Kowloon Reclamation.
ガードルブホの住
4.8
4.9
4.10
4.11
Geotechnical Engineering Office were four branches: Island Branch, Mainland Branch, Development Branch and Landslip Preventive Measures Branch. The Civil Engineering Office was responsible for the design, construction and maintenance of all public marine facilities including seawalls, breakwaters and breakwaters; the execution of fairway dredging and management of mud disposal sites; land formation works including feasibility studies, design and execution, and the use of construction and demolition materials in
reclamation and management of public filling areas; the improvement of rural environment
in the New Territories, and the feasibility evaluation of proposed marine works and their impact238.
In 1997, the Works Branch (previously part of the Lands and Works Branch) was renamed the Works Bureau. It became part of the Environment, Transport and Works Bureau after another restructuring which took place on 1 July 2002. In 2003, the Civil Engineering Department consisted of four primary work groups: Civil Engineering Office, Special Duties Office, Geotechnical Engineering Office, and Administrative and Technical Services Branch. Under the Civil Engineering Office, the General Engineering Branch had been abolished; the Land Development Branch (responsible for co-ordinating the Development Division and the Housing Sites Division) had been added, and the Port and Airport Development Strategy Branch had been transformed into the Port
Branch (responsible for administering the Port Works Division and the Technical Services Division). These two branches, together with the Project Management Branch, constituted the three major functional groups of the Civil Engineering Office. The Special Duties Office was made up of the Special Duties (Co-ordination) Division and the Special
Duties (Works) Division. The Geotechnical Engineering Office oversaw four branches:
Hong Kong Island Branch, Mainland Branch, Development Branch (directed the Planning
Division, Materials Division and Special Projects Division), and the Landslip Preventive
Measures Branch. The Administrative and Technical Services Branch had four functional
divisions under its jurisdiction: Administration Division, Survey Division, Accounts and Supplies Division and Technical Services Group. Looking at the transformation
Part IV Multi-Nucleus Expansion (1982-2003)
209
D
Robson, J. J.
(1965-1969)
Directors of Civil Engineering from past to present
лис
Skelt, George James (1969-1971)
Whitaker, J. R.
(1971-1973)
Et Lau, Ching-kwong
(2000-2002)
Bell, W. C.
(1973-1975)
Stead, Harry David
(1975-1978)
Chan, Nai-keong
(1980-1982)
Brand, E. W.
(1989-1996)
Don, J. S. (1978-1980)
zy
7x2
Short, Frank Edmond
Nip, Kam-fan
(1982-1984)
(1984-1989)
Lam, Moon-tim
(1996-1999)
Lo, Yiu-ching (1999-2000)
行政及技術服務科
Administration &
Technical Services Branch
土木工程處 Civil Engineering Office
土地拓展科
Land Develop-
ment Branch
港口科
Port Branch
Tsao, Tak-kiang
(2002-present)
土木工程署署長
Director of
Civil Engineering
專責事務處
Special Duties Office
土力工程處
Geotechnical
Engineering
Office
拓展科 Development
Branch
港島科
Hong Kong
Island Branch
工程管理料
九龍及新界料
Project
Managment
Branch
Mainland
Branch
|防止山泥傾瀉科 Landslip Preventive Measures Branch
4.12 Organisation chart of the Civil Engineering Department in 2004.
Part IV Multi-Nucleus Expansion (1982-2003)
211
4.13 Group photograph of the senior staff of the Civil Engineering
Services Department (November 1990). Its name changed
to the Civil Engineering Department in 1991.
4.14 Group photograph of the senior staff of the Civil Engineering
Department (2003).
4.13
Rose Garden Project
Part IV Multi- Nucleus Expansion (1982-2003)
process of the Engineering Development Department into the Civil Engineering Department, its organisation structure and the functions of its works units, one can recognise the pivotal role played by the Civil Engineering Department in the planning and execution of infrastructural projects, the construction and upkeep of port facilities, the proper maintenance of dangerous slopes, and the formation of land and development of the Hong Kong port. On 1 July 2004, the Civil Engineering Department is to merge with the Territory Development Department and form the Civil Engineering and Development
Department.
In the mid-1970s, the pace of new town development slowed down due to a worldwide economic downturn, while the volume of China's exports handled by Hong Kong registered an average annual growth rate of 46 per cent between 1984 and 1989. The Metroplan in the 1980s presented a number of proposals on the development of the urban areas on both sides of Victoria Harbour. It envisaged that by the end of the
twentieth century and the early twenty-first century, Hong Kong's port would be required
to handle much higher volumes of sea and air cargo. The Kwai Chung container port and Kai Tak Airport would be hard pressed to meet the projected demand. From the mid-1980s onwards, key priorities were placed on the development of port facilities with container-handling capabilities that would allow mainland vessels to berth and handle large volumes of cargo, an airport that could serve as regional or international air hub, transportation networks, services industries and telecommunications systems 239.
Airport Core Programme
When Patrick Abercrombie formulated the urban plan for Hong Kong, he noted that Kai Tak Airport was not ideal for air freight operations240. The airport was constrained by limited developable space and could no longer satisfy the burgeoning air transport demand shortly after the war. In 1949, a British administrative officer, David Rees- Williams, urged the Hong Kong government to build another airport. Nevertheless, no action was taken on the proposal until 1967, when the Colony Outline Plan Report No 5 included recommandation with regard to the expansion of Kai Tak Airport. It identified Yuen Long West as a suitable site for the new airport. In 1973, the government commissioned, Ralph M. Parson Co, to undertake a comprehensive review of the air transport system in Hong Kong and formulate a long-term plan. In January 1975, the consultants released a nine-volume, 1,600-page report, complete with 225 illustrations and hundreds of tables. It analysed the projected growth of aviation services in Hong Kong up to 1995 and identified 13 possible sites for the new airport: San Tin, Ha Tsuen, Nim Wan, Tai
4.14
213
Lam Kok (Brothers Point), Chek Lap Kok, northeastern mountain ridges of Lantau,
Chau Kung To (Sunshine Island), Lamma Island, Mang Kung Uk, Sha Tin Hoi, Tolo Channel, Shek Kong Barracks and Cheung Chau.
The government examined the 13 potential locations and rejected seven of them: Ha Tsuen, Tai Lam Kok, the northeastern mountain ridges of Lantau Island, Chau Kung To, Mang Kung Uk, Sha Tin Hoi and Shek Kong Barracks. Upon further evalvation, the authorities regarded Chek Lap Kok as the most suitable location. In 1977, the Civil Engineering Office conducted land development studies and the work included large-scale geotechnical investigations, the testing of reclamation method at
Chek Lap Kok, and preliminary designs for the reclamation and the infrastructure. In August 1978, the Executive Council examined the civil engineering studies on site formation at Chek Lap Kok24.
The Chek Lap Kok Airport plan was shelved in 1983. In 1987, the government engaged experts from at least 12 fields to conduct the Port and Airport Development Strategy study. In March 1988, a panel of consultants made up of Mott MacDonald Hong Kong Ltd, Shankland Cox, Maunsell Consultants Asia Ltd, Wilbur Smith Associates and Coopers & Lybrand Associates Ltd were hired to render advice on port and airport strategy. In April of the same year, the Civil Aviation Department engaged Netherlands Airport Consultants BV to conduct studies on airport site selection242. It presented three options for consideration. The first one was to build the new airport at the western harbour entrance between Lamma Island and Cheung Chau. The second option was to
carry out reclamation at Chek Lap Kok Island for the new airport. The last alternative was to retain Kai Tak Airport and undertake further expansion.
The relevant government departments played an active co-ordinating role in the feasibility studies. Between 1981 and 1983, the government conducted additional
studies on the impact of infrastructural development on North Lantau, and the Engineering Development Department undertook design work for the Lantau Link (connecting Tsing Yi to Lantau) and the coastal roads leading to the new airport243. It also carried out investigations within Hong Kong waters to source suitable sea sand as fill material and engaged Binnie Consultants Limited to employ computerised Water Quality and Hydraulic Models to predict the environmental impact of different reclamation designs. All participating departments in the strategic studies had to assess the economic benefits, the environmental and social impact, the work progress arrangements and the flexibility of alternative plans. In the area of economic efficacy, much attention was given to the growth trend of public spending, and the productivity of manufacturing industries. The Financial Secretary was responsible for capital monitoring and research on the regulatory framework.
In 1989, the panel of consultants and government experts concluded their studies and the Executive Council approved the construction of a new airport at Chek Lap
1
Kok. On 11 October 1989, the administration announced the decision and estimated
the cost of the port and airport works, together with the other infrastructure, at HK$127
billion. Of the total, port development accounted for 40 per cent and the airport, 30 per cent, with about half of the funding for the port and airport works contributed by the private sector244. The Provisional Airport Authority and the Port Development
معارف
4.15 Aerial view of Kai Tak Airport in 1983.
the
Board were established on 1 April 1990. Between October 1990 and 30 June 1991,
Chinese and Hong Kong governments held talks on the proposed airport, and resulted in the signing of the Memorandum of Understanding Concerning the Construction of the New Airport in Hong Kong and Related Questions.
According to the memorandum of understanding signed by the Chinese and
the British governments on 14 July 1991, the 10 projects of the Airport Core Programme
Challenges for an Evolving City
214
4.16 Panoramic view of Chek Lap Kok Airport. (1996)
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216
were intended to be completed before the reversion of sovereignty on 30 June 1997. These 10 interlinked projects were: a new airport at Chek Lap Kok (with the first runway and associated facilities), West Kowloon Reclamation, the part of Central and Wan Chai Reclamation related to the Airport Railway, North Lantau Expressway, West Kowloon Expressway, Western Harbour Crossing, Route 3 (part), Airport Railway, Lantau Fixed Crossing, and Tung Chung Development Phase [245.
In June 1992, the government amended the development programme and implementation timetable. The Airport Core Programme involved the formation of 1,669 hectares of land: 1,248 hectares for the new airport, 67 hectares for Tung Chung New Town, 334 hectares for the West Kowloon Reclamation, and 20 hectares in Central
and Western District. In 1994, the land development works carried in West Kowloon
also covered the reclamation at Stonecutters Island. The land formed was used for government community facilities, housing, commercial development, and airport roads such as the third cross-harbour tunnel, West Kowloon Expressway and a rail line. The West Kowloon Reclamation was projected to house 159,000 people246.
The airport related reclamation works in Central and Wan Chai stretched from Rumsey Street in Sheung Wan to Causeway Bay, and were expected to yield 108 hectares of land. The works were performed along the waterfront and divided into five phases: three in Central and two in Wan Chai247. The primary objective was to construct the Airport Railway's Hong Kong Station, the Central-Wan Chai Bypass, the Island Eastern Corridor Link and the MTR North Hong Kong Island Line and expand the business district of Central and improve traffic flow along the waterfront. In September 1993,
work commenced on Phase I of the Central Reclamation and yielded 20 hectares of
land between Central and Blake Pier in June 1998. The second phase began in December 1994 and ended in September 1997, with the formation of 5.3 hectares of land at the Tamar Basin for commercial and open space purposes. Phase I of the Wan Chai Reclamation was largely related to the extension of the Hong Kong Convention and Exhibition Centre 248. Work took place between March 1994 and July 1997249. Originally, Wan
SKA WAN
4.17 Overview of Reclamation in urban area of Hong Kong.
Chai Reclamation Phase II (WRII) involved the reclamation of 48 hectares of land along the waterfront for the development of infrastructure, residential housing and hotels, a cruise centre and a public park. Owing to restrictions imposed by the Protection of the Harbour Ordinance (Cap. 531) enacted on 30 June 1997 and public concern, the authorities proposed to scale down the reclamation to 28.5 hectares. As for the Central
Reclamation Phase III work (CRIII), which involved the construction of a Central-
Wan Chai bypass road, the government also curtailed the size of reclamation from 32 hectares to 18 hectares250. Both CRIII and WRII works were then suspended, as the government and the opponents to further reclamation failed to reach consensus and became embroiled in litigation. On 27 February 2003, the Society for the Protection of the Harbour (SPH) applied for a judicial review against the decision of the Town Planning Board (TPB) in respect of the draft Wan Chai North Outline Zoning Plan No S/H25/1. On 8 July 2003, the High Court ruled that TPB had failed to comply with Section 3 of the Protection of the Harbour Ordinance. According to the court's ruling, three tests have to be satisfied prior to undertaking any harbour reclamation: 1. There is a compelling, overriding and present public need for reclamation;
2. There is no viable alternative to reclamation; and
3. The proposed reclamation involves minimum impairment to the harbour.
On 26 August, TPB appealed to the Court of Final Appeal against the High Court's decision. On 25 September, SPH sought a judicial review and an interim injunction
|
Table 4.2 Airport Core Programme Cost Estimates (March 1993)
(unit: HK$100 million)
Govt.
Funds
Project
Funds Loan
Private Total
Sector
1
New airport at Chek Lap Kok
169
165
102
436
2
North Lantau Expressway
43
43
3
Lantau Fixed Crossing* (including a railway portion,
121
121
sea-spanning bridges and Route 3 interchange)
4
Route 3 (part)
5
West Kowloon Expressway
56
17
6
Western Harbour Crossing
393
56
17
39
7
Airport Railway
125
8
Tung Chung Development Phase
26
9
West Kowloon Reclamation
90
220
26
90
18
15
15
537
165
141
986
西九能快速公路
DE PUTERAARAN DUN
ZAR
4.18 West Kowloon development plan, with the
transport network blueprint. (1993)
西區海底邇
DERMA ME 32 AL AR
Scale
•
Challenges for an Evolving City
218
*
10 Central-Wan Chai Reclamation
11 Public facilities
Total
Lantau Fixed Crossing is now known as Lantau Link. When cost estimation was made on the projects, the allocation of expenditure for the Airport Railway
and Central-Wan Chai Reclamation was not yet determined.
Source:
Pryor, E. G., Gangkou ji jichang fazhan celüe: Xianggang de fazhan jichu (Hong Kong's Port and Airport
Development Strategy: A Foundation for Growth), Hong Kong, Government Printer, 1991, p. 79.
over CRIII works, but its application was rejected by the High Court on 6 October. The Court of Final Appeal handed down its judgement on Wan Chai reclamation on 9 January 2004. It substituted the "three tests" adopted by the High Court with an "over-riding public needs" test. On 9 March 2004, the High Court ruled against the SPH's application for judicial review in respect of CRIII and allowed the resumption of work251. The government then announced its intention to appoint an Advisory Committee on Enhancement of the Habourfront to solicit views from the community regarding the remaining proposed reclamation within the harbour. On 29 April 2004, the government announced the composition of the advisory committee252. The reclamation saga has made everyone realise that Victoria Harbour is a precious public asset and a part of Hong Kong's natural heritage. It is incumbent on the authorities to fully evaluate the importance and obtain community consensus prior to undertaking any further reclamation.
The transport corridor of the Airport Core Programme consists of the Western Harbour Crossing, West Kowloon Expressway, the Kwai Chung and Tsing Yi sections of Route 3, Lantau Link, and North Lantau Expressway. All the items were completed before 30 June in 1997 253. The new town at Tung Chung, built along the coastal areas between Tung Chung and Tai Ho, entailed the formation of 67 hectares of land. Besides providing back-up space for the new airport, the land is also used for commercial and
►
residential developments and the construction of public housing blocks, with an ultimate capacity of housing 320,000 people. Development works began in April 1992 and the first phase was completed in the second quarter of 1997.
West Kowloon Reclamation
In 1983, before the implementation of the Airport Core Programme, the Harbour Reclamation and Urban Growth study discussed the West Kowloon Reclamation. The report stated that the development of West Kowloon would not only provide land for the construction of transport infrastructure encompassed by the Airport Core Programme such as the Airport Railway, roads and the Western Harbour Crossing, but would also help alleviate the congested residential and commercial districts on the Kowloon Peninsula 254. The reclamation would provide more recreational and open space, and better social service facilities. It would improve the living environment in West Kowloon, in line with the comprehensive development concept espoused in the government's Metroplan. In 1984, the Executive Council approved the West Kowloon Reclamation proposal, which was incorporated into the development strategy.
Of the 10 core projects covered by the Airport Core Programme, the West Kowloon Reclamation was the most complicated and the largest urban reclamation ever undertaken. It began at Tsim Sha Tsui and extended northwards to cover of Yau
Ma Tei, Cheung Sha Wan and Mei Foo, creating 334 hectares and boosting the size of the Kowloon Peninsula by one-third. One hundred and twenty hectares was used to build the transport corridor leading to the new airport - West Kowloon Expressway, Airport Railway and two stations, and the connection to the Western Harbour Crossing. Another 50 hectares was set aside for the construction of government/institution/community facilities in the form of schools, clinics and social services facilities, indoor recreation centres, police stations, a magistracy, public car parks, and the Stonecutters Island Government Dockyard. Other types of land use were: 59 hectares for public open
Part IV Multi-Nucleus Expansion (1982-2003)
219
WEST KOWLOON RECLAMATION.
REPLACEMENT
TYPHOON
SHELTER
EXISTING
YAU MA TEI
YPHOON SHELTER
4.19 Blueprint of the Southern Area of
West Kowloon Reclamation. The
seawall and breakwaters are
marked red, with the limit of
planned reclamation area shown in yellow. (1989)
4.20 Distant view of the West Kowloon
Reclamation works from Mid-
Levels, Central.
4.21 Reclaiming the existing Yau Ma Tei Typhoon Shelter was part of the West Kowloon Reclamation project
4.19
4.20
4.21
Part IV Multi- Nucleus Expansion (1982-2003)
space, 33 hectares for industrial and commercial development, 20 hectares for new housing, 31 hectares adjacent to the MTR station as a comprehensive development area, and 21 hectares for the Cheung Sha Wan Wholesale Market255.
Cherry Street was used to demarcate the reclamation project into Southern and Northern areas. The Southern area involved four major construction contracts
while the Northern Area entailed two massive contracts. The Southern Area included
the New Yau Ma Tei Typhoon Shelter, the old typhoon shelter nearby, the Yau Ma Tei Public Cargo Working Area, the Stonecutters Island Government Dockyard and the new ferry pier on Jordon Road. The Northern Area encompassed five cargo piers; the Cheung Sha Wan Wholesale Market (equipped with 700 lorry parking spaces); the road network leading to the wholesale market; the Cheung Sha Wan Shipyards; the cargo handling area of the China Resource Company warehouse, and the airport associated transport works, namely, West Kowloon Expressway, Western Harbour Crossing, Airport Railway and Route 3, which connect Hong Kong Island with Kowloon and the Northwest New Territories. The Civil Engineering Department planned and supervised the Southern Area Section works, while the Territory Development Department assumed responsibilities for the Northern Area. Mott MacDonald Hong Kong Ltd acted as consultants. Detailed designs for the Southern Area reclamation started in early 1990 and in the second quarter for the Northern Area256.
The reclamation was implemented in three phases. The 68-hectare New Yau
Ma Tei Typhoon Shelter was the first project item; it started in August 1990 and ended in 1992. Phase II took place between the end of 1992 and 1995. The last phase began in 1999 and involved the reclamation of 13 hectares at the southern end of West Kowloon 257.
There were seven major civil engineering works: the construction of 8.5 kilometres of seawall and breakwaters, 17 kilometres of roads258, as well as rebuilding the affected waterfront facilities, drains, seawater intake chambers and water pumping facilities. It required the dredging of 34 million cubic metres of marine mud and the use of 69 million cubic metres of fill material, and the shoreline was extended by one kilometre.
A total of HK$12 billion259 was spent on this project, $3 billion above the 1993 cost
estimates.
The West Kowloon Reclamation posed more difficulties than the grandiose Tsing Ma Bridge or the Chek Lap Kok reclamation. The project entailed the relocation of existing cargo and passenger piers and warehouses to the new waterfront, while maintaining the normal operation of the old Yau Ma Tei Typhoon Shelter throughout
the work. It necessitated the reconnection of drainage pipes which greatly complicated the task, as the existing sewerage systems in the old West Kowloon district were at or below the sea level. The ensuring traffic congestions and disruptions to urban services
angered some residents. At the same time, the government had to ensure compliance with environmental protection laws by the contractors, and mitigate the impact of construction noise and particulate pollution. To speed up progress, work was sometimes allowed to take place concurrently on two expressway contracts, and three dredging and reclamation contracts. All major projects were completed on schedule by mid- 1997, with the last minor reclamation contract finished by the end of 2003 260.
221
Port Development
STAGE I
{UUSER
RECLAMATION
CORAFAUCTION)
Part IV Multi-Nucleus Expansion (1982-2003)
In 1973, Director of Public Works J. J. Robson stated that Hong Kong had begun shifting its port development westwards after the end of the Second World War. Prime examples of this shift were the establishment of a satellite town in Tsuen Wan in the 1950s and the construction of the container terminal in the 1960s 261, and the port development projects at the end of the 1980s merely accentuated the westward move. These infrastructural works were distinguished by their massive scale, short completion times and enormous sums.
On 1 April 1990, the government set up the Port Development Board to formulate a long-range blueprint for the Hong Kong port. Infrastructural enhancements undertaken included: the construction of container terminals, the redevelopment of the KCR terminus at Hung Hom, the expansion of the central business areas at Hung Hom Bay and along the waterfront of Central, the provision of additional anchorages in the western part of the harbour, and the construction of a breakwater between Kau Yi Chau and Peng Chau262 for protection. Specific infrastructural additions were: container terminals and back-up land; anchorages and cargo working areas; piers for servicing cargo vessels plying the waters between Hong Kong and the Pearl River Delta cities, and bulk cargo handling piers; facilities to handle fuel, coal, industrial chemicals and building materials; mooring and port maintenance service providers; high-capacity deepwater fairways and aids to navigation; typhoon shelters and anchorages to allow storage of dangerous goods, execution of quarantine procedures, and mooring for vessels requiring long- term berthing as well as vessel waiting and cargo working areas. The major port development projects undertaken or to be undertaken are as follows:
• Construction of Container Terminal 8 (CT 8) on Stonecutters Island and Container
Terminal 9 (CT 9) on Tsing Yi;
• Planning of Container Terminal 10 (CT 10) on Lantau Island;
• Dredging of Kellet Bank in front of Green Island, for the installation of buoys displaced
by reclamation works;
• Construction of an anchorage area in the western part of the port, and a 2-kilometre
¦
GIMIN E CREEK
NEELJUSTING
PAUPINE STATION
STAGE II
CONTAINER TERMIDAL #{PROPOSED )
BACRED AREA & POOPSSES 2
STAGE III
La 201 ran NECLAMATION
STADE I
↓ PORPUSED?
4.22 Kwai Chung container port expansion blueprint: determination of reclamation area for additional
berths and back-up areas. (1984)
breakwater between Lamma Island and Cheung Chau;
• Dredging of a new deep fairway west of Lamma Island to create two auxiliary navigational channels to North Lantau, in order to ease congestion in the East Lamma Channel;
• Construction of new typhoon shelters at Hei Ling Chau and Peng Chau in the western
harbour area, and east of Tuen Mun at Siu Lam;
•
Improvement of traffic management of the Ma Wan Channel waterway;
• Construction of pier facilities west of Tuen Mun to facilitate cargo movement to and from the Pearl River, and to provide deepwater areas for industrial use; and
• Provision of a general-purpose cargo working area at Kowloon Bay.
Enhancement of Logistic Capabilities
Hong Kong enjoyed rapid expansion in its re-export trade from the late 1980s to the early 1990s. Since China launched the open-door policy in the 1970s, its foreign trade has grown in leaps and bounds. As Hong Kong was an important trans-shipment centre for Chinese products, the demands made on its container port quickly exceeded its capacity. The Kwai Chung Container Terminal underwent a series of expansion
Challenges for an Evolving City
222
223
Table 4.3 Overview of Kwai Chung Container Terminal Development (1972-2003)
Terminal
No
Date Commissioned
Terminal Area
Cumulative Back-Up Area (hectare)
I
Sep 1972
2
1973
Founding Operator
3
Jan 1973
18.6
4
Apr 1976
Modern Terminals Ltd
Kowloon Container Wharf Co Ltd
Hong Kong International Terminals Ltd Modern Terminals Ltd
Sea-Land (Orient) Ltd
Hong Kong International Terminals Ltd
5
Mar 1976
Modern Terminals Ltd
6
May 1988-Jan 1989
29
114
Hong Kong International Terminals Ltd
7
Nov 1989-Sep 1990
31.5
128
Hong Kong International Terminals Ltd
4.23
8
1993-1995
48
190
Modern Terminals Ltd
(CT 8 with a back-up area
of 62 hectares)
9
Jul 2003
68
255
(CT 9 with a back-up area of 65 hectares)
Asia Container Terminals Ltd
Modern Terminals Ltd
Hong Kong International Terminals Ltd
Challenges for an Evolving City
Sources:
Hong Kong, Hong Kong, Government Printer, 1981-2002.
Xianggang maijin xin jiyuan (Hong Kong - A New Era), Hong Kong, Government Printer, 1998, p. 211. Pryor, E. G., Gangkou ji jichang fazhan celüe: Xianggang de fazhan jichu (Hong Kong's Port and Airport Development Strategy:
A Foundation for Growth), Hong Kong, Government Printer, 1991, p. 32.
224
just three years after it went into full operation in 1976. By 1980, the terminals had a total berth length of 2,300 metres, and back-up areas of 85 hectares (210 acres). They were able to accommodate six third-generation container ships simultaneously. Between 1980 and 1987, the Civil Engineering Department assisted in the expansion of back-up land and participated in the construction of terminals. The back-up space
rose from 85 hectares (210 acres) in 1980 to 114 hectares (282 acres) in 1987, while
the number of berths increased from six in 1987 to 15 by 1998. Following the completion
of CT 6 and CT 7 at Kwai Chung, the government began the construction of the four-
berth CT 8 on Stonecutters Island in 1991, with an area of 48 hectares (119 acres). In
1992, the administration started preparations for CT 9 on Tsing Yi, to be equipped
with six berths on a 68-hectare site. Since the mid-1990s, the authorities have been
working on the plans for container terminals 10-13. They are to be located on Northeast Lantau and will add 20-plus berths to improve Hong Kong's infrastructural support for the re-export trade. In 1999, in a bid to boost Hong Kong's tourism industry, the government altered the development focus for Northeast Lantau and earmarked it for strategic development of tourism and leisure facilities.
The container throughput at the Kwai Chung Container Terminal posted negative
growth in the year 2001. Nevertheless, during the 23-year period between 1980 and
2003, the number of containers handled by the Kwai Chung container port was on an upward trend. In the year 1991, the terminals handled 22 per cent more TEU than the previous year. This was exceeded by the 30 per cent increase achieved in 1992 - the
EPPERVS19
4.24
4.23 Kwai Chung container port in
1984.
4.24 Kwai Chung container port in
1997.
4.25 Back-up area of the Kwai
Chung Container Terminal,
with reclamation works close
to completion in March 1989.
4.25
. Peng Chau
Table 4.4 Kwai Chung Container Terminal Throughput (1980-2003)
(unit: '000 TEU)
Year-on-Year Growth
Year
1980
Throughput
1,480
1981
1,560
+ 5%
1982
1,690
+ 9%
1983
1,830
+ 8%
1984
2,100
+15%
大欖
Tai Lam
Sha Tau Kok
吉澳
1985
Kat O
2,250
+ 7%
1986
2,700
+20%
1987
3,400
+26%
1988
4,000
+18%
新界
NEW
TERRITORIES
1989
4,440
+11%
1990
5,040
+14%
1991
6,160
+22%
1992
8,000
+30%
鳥
沙
1993
Wu Kal Sh
9,000
+13%
1994
10,000
+11%
九龍
1995
KOWLOON
12,500
+25%
1996
13,200
+ 6%
1997
14,500
+10%
1998
14,650
香港島
大嶼山
HONG KONG ISLAND
LANTAU ISLAND
1999
16,200
+ 1%
+11%
2000
18,100
+12%
白沙灣
Pak Sha Wan
2001
17,800
2%
2002
19,100
+ 7%
2003
20,000
+ 5%
Sources:
Hai Ling Chau
長洲
Cheung Chau
東龍洲
Tung Lung Chau
Chan, Chui-hay and Wong, Tak-sing, The Expansion of the Kwai Chung Container Terminal: A Critical Economic Appraisal: Research Report, Hong Kong, The Chinese University of Hong Kong, MBA Thesis, 1983, p. 22.
Hong Kong, Hong Kong, Government Printer, 1981-2002.
Hong Kong - A New Era, Hong Kong, Government Printer, 1998.
Hong Kong Port Development Council webpage: http://www.pdc.gov.hk/eng/statistics/hongkong.htm
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