優化土地供應策略專題討論 2︰土地儲備 Enhancing Land Supply Strategy Topical Discussion 2: Land Reserve

Enhancing Land Supply Strategy:
Reclamation outside Victoria Harbour and
Rock Cavern Development
優化土地供應策略: 維港以外填海及發展岩洞

2nd Topical Discussion (10 December 2011):
Land Reserve – Ensuring Timely Supply
第二場專題討論（2011年12月10日）：
土地儲備 - 確保適時供應

Revision made to PowerPoint since the event held on 10 Dec 2011:
在2011年12月10日舉行專題討論後，對簡報所作出的修訂:

P. 11 – Land Usage in HK 770 sq. km is amended to 705 sq. km.

第11頁 – 香港土地運用 770平方公里修正為705平方公里。

2

1. Needs of Land
土地需要

2. Land Reserve Concept
土地儲備的概念

3. Oversea Experiences
海外經驗

Needs of Land
土地的需要

• Population Growth人口增長

• Economic Development經濟發展

• Quality of Life 生活質素

Population Growth
人口增長

By 2039:
• Population estimated to grow by 25%,
reaching 8.9 million
• number of households increase almost
by 30% to 3.1 million during the same
period.

至2039年:
• 香港人口估計會有25％的增長，達890
萬
• 住戶數目會有接近3成的增幅至310萬
Population growth 2011 7.1M
人口增長戶。
2030 8.4M
2039 8.9M

Household growth 2011 2.4M
住戶增長 2030 2.9M Housing demand
房屋需求
2039 3.1M

Economic Development
經濟發展
Economic Development
• Four Pillar Industries: financial services, trading and
logistics, tourism, and professional services have been the
drivers of HK’s economic growth and jobs creation.
• Six industries actively promoted by the Government:
medical services, environmental industries, testing and
certification services, education services, innovation and
technology, and cultural and creative industries, also require
land for development.
• To enhance our competitiveness, adequate land should be
provided for infrastructure and business use.
經濟發展
• 四大支柱行業:金融、貿易及物流、旅遊，以及專業服務
一直是香港經濟增長動力及工作職位來源。
• 政府正積極推動的六大產業 : 醫療、環保、檢測及認證、
教育、創新科技，以及文化及創意，亦需要土地供應配
合發展。
• 為提升香港的競爭力，我們需要提供足夠商業用地及其
他土地進行基礎建設。

Quality of Life
生活質素
Quality of Life 生活質素
Public’s aspiration 大眾的期望:
• lowering building density 降低建築密度
• having more open space 增加活動空間
• conserving the natural environment保護自然環境
• preserving culture and heritage保存文化和文物

More vigorous measures (e.g. stepped
building heights, building gaps, building
set-back) were introduced after the
outbreak of SARS to promote better
development layout so as to improve air
An Example: APP-152 Sustainable Building Design Guidelines – Site Coverage of Greenery ventilation.
例子: 作業備考編號 152可持續建築設計指引 - 綠化覆蓋率
自從SARS爆發後，採用了更有力的措
施（如梯級型建築物高度，建築物間
距，建築物退縮），以促進更好的發
展佈局，改善空氣流通。

Uncertainties in Demand
Changing Demand 需求不確定
• Long-term population forecasts, are bound to be adjusted
as social and economic circumstances change, resulting in
uncertainties in land demand.
• People’s expectation of living quality also changes when
social and economic circumstances change, adding more
uncertainties to land demand.
• The fast changing market conditions have also caused
considerable uncertainties in land demand for economic
development.

不斷變化的需求
• 隨著社會和經濟情況的變化，人口的長期預測，必然
需要有所調整，令土地需求變得不確定。
• 市民對生活質素的期望也隨著社會和經濟情況的變化
而改變，增添了土地需求的不確定性。
• 市場狀況瞬息萬變，為經濟發展預留所需用地會有相
當大的不確定性。

Broad Land Usage Distribution
概括土地用途的分布情況 (2010)
香港土地總面積1,108平方公里
Hong Kong Total Land Area 1,108 Sq Km

Agricultural land
農地, 6.1%

Residential 住宅, 6.9%
Woodland/ Shrubland /
Grassland/ Wetland
林地/灌叢/草地/濕地, 66.8%
Commercial/ Industrial/
Government, Institutional
& Community Facilities/
Open Space 商業/ 工業/
政府, 機構和社區設施/ 休
憩用地,7.1%

Other Urban or Built-up Land Transportation 運輸
Barren Land/ Water Bodies 其他都市或已建設土地 , 5.1%
荒地/ 水體 , 4.7%
, 3.3%

Land Usage in HK
香港土地運用
 Developed Area (approx. 263 sq. km) 已發展土地(約263平方公里)

Land Usage in HK
香港土地運用
 Protected Area (approx. 705 sq. km) 受保護地區 (約705平方公里)

SSSI (Ting Kok) 具特殊科學價值(汀角)
Yan Chau Tong Marine Park 印洲塘海岸公園

Wetland 濕地

Tai Tam Country Park 大潭郊野公園

Limitation of Developing Remaining Area
餘下土地的發展局限
Remaining Area Key Limitations on Development
餘下土地主要分區主要發展局限
1. Green Belt 綠化地帶 • Buffer zone between developed area and country park, etc.
• Protection of vegetation, PlanD is reviewing some green belt areas
• 已開發地區和郊野公園之間的緩衝地帶
• 保護植被、規劃署正檢討部份綠化地帶
2. Rural Area 鄉郊地方 Scattered ownership, conservation of rural character, insufficient
infrastructure
業權分散、保育鄉郊特色、基建不足
3. In Proximity to Boundary Area Conservation, mangroves, government does not have the leading role
靠近邊境禁區 in development
保育、紅樹林等、政府沒有發展主導權
4. Outlying Islands and Other Scattered ownership, insufficient infrastructure, sloping topography
Areas 離島及其他地區業權分散、基建不足、斜坡

Government does not have the leading role in development, so difficult to develop in large-scale.
政府沒有發展主導權，難作大規模發展。

Broad Land Usage Distribution 概括土地用途的分布情況 (2010) Estimation of land demand for
Area面積 the extra population using
Land Use Categories類別 %
(sq.km.平方公里) existing land usage distribution
Residential 住宅 76 6.9% For every 1 M population, it needs,
Private Residential 私人住宅 25 -11km2 add. residential land
Public Residential 公營房屋 16 -14km2 add. land for economic
Rural Settlement 鄉郊居所 35 activities, community facilities and
Commercial 商業 4 0.4% transport infrastructure
Industrial (incl open storage)
26 2.3% For the additional population of
工業(包括露天貯物用地)
1.8M arisen from now until 2039,
Institutional / Open Space 機構/休憩用地 49 4.4%
it will need,
Government, Institutional & Community Facilities
25 -20km2 residential land
政府、機構和社區設施
Open Space 休憩用地 24 -25km2 land for other uses
Transportation 運輸 56 5.1%  In total, 45km2 (or 4500 ha)
Roads 道路 40
Railways 鐵路 3 基於現有土地使用分布預計
Airport 機場 13 新增人口所需土地
Other Urban or Built-up Land (incl Cemeteries and 每百萬人口約需要:
crematoriums, Utilities, etc) - 11平方公里新增住宅用地
52 4.7%
其他都市或已建設土地 (包括墳場和火葬場、公用
- 14平方公里新增其他用地包括
事業設施等等)
Sub-total (Built- Up Areas) 小計 (都市或已建設土地) 經濟用地、公共配套設施和道
263 ≈ 24%
Agricultural Land 農業 68 6.1%
路/運輸基建
Woodland/Shrubland/Grassland/Wetland
740 66.8% 到2039年預計有180萬人口增長,
林地/灌叢/草地/濕地
Barren Land (incl badland, rocky shore, quarries) 7 便需要大約:
0.6% - 20平方公里住宅用地
荒地(包括劣地,岩岸,石礦場)
Water Bodies 水體 30 2.7% - 25平方公里其他用地
TOTAL 總計 1108 100% 合計45平方公里(或 4500公頃)

Major Land Supply Sources 主要土地供應來源 (1):
Development Projects 發展項目
Site Area Land Supply Options 供地模式
發展面積 Rezoning Land Redevelopment Resumption Reuse of Ex- Reclamation
(latest est. 更改土地重建收地 quarry Sites 填海
最近估算) 用途重用前石礦場
West Kowloon Cultural District
40 ha Land development completed 開拓土地工作完成
西九龍文化區
Kai Tak Development
320 ha Land development completed 開拓土地工作完成
啟德發展區
Tseung Kwan O South
60 ha Land development largely completed 開拓土地大致工作完成
將軍澳南
Tung Chung Remaining Area
250 ha   
東涌餘下發展區
New Development Areas in NT
1050 ha  
新界新發展區
Ex-quarry sites (4 nos.)
160 ha  
前石礦場 (4個地點)
Other Housing Projects
870 ha   
其他房屋發展項目

Major Land Supply Sources 主要土地供應來源 (2):
Rezoning and redevelopment 更改土地用途及重建
Site Area Land Supply Options 供地模式
發展面積 Rezoning Land Redevelopment Resumption Reuse of Ex- Reclamation
(latest est. 更改土地重建收地 quarry Sites 填海
最近估算) 用途重用前石礦場
As pursued in 2011 Policy
Address, rezoning part of
industrial land, green belt,
agricultural land for non-
industrial and housing use 260 ha   
按2011年施政報告所推動的,
將部分工業用地、綠化地帶
和農業用地改劃作非工業發
展用途及房屋用地
Known redevelopment
projects URA and private
developers under 
consideration (as at Dec 2011)
30 ha  Total land can be
正被考慮的政府及私營 provided is about 3040ha
發展商重建項目總共提供約3040公頃
(截至2011年12月)
可發展土地

Uncertainties in estimate of deficit in land
估算土地不足牽涉的不確定性
For Example 例如 :
• Population growth 人口增長
• Transport infrastructures 道路運輸基建
• Aspiration for development density and community facilities
對發展密度及社區設施的期望
• Rezoning 更改土地用途

• To create a land reserve 要建立土地儲備
• To speed up implementation of practicable supply options
要加快推行實際可行的供地模式

To have a more flexible and resilient mix of land supply options
務求有一個更靈活及具彈性的土地供應模式組合
16

Land Reserve Concept
土地儲備概念
While the government will continue to supply land by all existing options for now
and for the future, there is also a need to introduce the concept of LAND RESERVE.

雖然政府將繼續以現有模式為現在和未來提供土地，同時也需要引入
土地儲備的概念。

土地儲備概念
Policy Address 2011-2012
Policy on Land Development and Accumulation
43. ……Our aim is to ensure an annual supply of land
for an average of about 40 000 residential units of
various types. Even when demand for land declines,
land development will continue. The newly
developed land will be kept in the Government's
LAND RESERVE and made available when
appropriate. By doing so, we will be able to supply
sufficient land for more than 40,000 units each year
when demand rises.

2011-12年度施政報告
發展及積存土地政策
43. ……我們的目標，是確保供應的土地每年平均能提供約四
萬個各類住宅單位。當土地需求下降時，開拓土地工作會繼
續，新開拓土地會成為政府土地儲備，在適當時候再推
出，務求做到當需求上升時，可及時提供足夠土地應付超過
四萬個單位的需求。

土地儲備概念

Establish Land Reserve in three forms
運用3 種形式來建立土地儲備

Land is formed first 先平整土地

• It can be used readily when the needs arise.
• The land can be allocated for temporary use before a
permanent land use is established.
• Suitable sites: with foreseeable needs of land in near
future or with least disputes

• 以備有需求時可即時使用。
• 在確立土地永久用途前，亦可用作其他臨時用途。
• 適合地點：可預見在不久將來有土地需求，或最少
爭議的地點。

土地儲備概念

Potential sites are identified with the necessary studies and
design work completed. 在已物色的可行地點，先完成研究
及設計工作。

• Actual construction can commence immediately when
the need is confirmed.
• Need extra time.
• Suitable sites: with foreseeable needs of land in near
future but with major issues to be considered (e.g.
social, environmental, technical, etc.).

• 在確定有需要時，建造工程可以隨時動工。
• 需要額外時間。
• 適合地點：可預見在不久將來有土地需求，但有許多
重要考慮因素（如社會，環境，技術等）。

土地儲備概念

Potential sites that fulfill the site selection criteria
are reserved. 預留符合選址準則的可行地點

• Further studies to ascertain their feasibility and design
works will only be carried out after the need is established.
• Need long lead time.
• Suitable sites: with NO clear needs of land in near future
identified.

• 待日後有需要時才進一步研究其可行性及開展設計工作
• 需要較長預備時間。
• 適合地點：在不久將沒有明確的土地需求。

土地儲備概念

Existing Land Supply Options - Suitability for Land Reserve
現有土地供應模式 - 作為土地儲備的適合性
Land Supply Option Suitability for Land Reserve
現有土地供應模式作為土地儲備的適合性
Redevelopment Not suitable
重建 • Private owners and developers take leading role
• Land supply by this option is less predictable
• Impact on existing land use, difficult to justify
redevelopment without planned use

不適合
• 業主和私營發展商主導開發進程
• 這土地開發模式供應較難預測
• 影響現有土地用途，沒有預先計劃土地用途的重建難
被接受

土地儲備概念

Land Resumption Not suitable
收地 • Cause local resentment
• Impact on existing land use, difficult to justify resumption
without planned use
• Can only be used for designated purposes and/or
projects, resulting in low flexibility in land use

不適合
• 引起居民反感
• 影響現有土地用途，沒有預先計劃土地用途的收地難
被接受
• 所得土地只能作指定用途和/或項目發展，靈活性低

土地儲備概念

Rezoning Land Not suitable
更改土地用途 • Involving private owners and developers
• Actual development hinges on market response
• Timing of development is less predictable
• Impact on existing land use, difficult to justify rezoning without planned
use
• It is not practical to rezone the government land as usually a use will first
be identified before the rezoning process is initiated
不適合
• 牽涉私人業主和發展商
• 實際發展情況視乎市場情況
• 難掌握發展時間
• 影響現有土地用途，沒有預先計劃土地用途的更改難被接受
• 更改現有政府土地用途的做法是不實際的，因為通常在更改土地用途
過程開始前，要先確定發展用途.

土地儲備概念

Reuse of ex-quarry sites Suitable
利用前石礦場 • No impact on existing land use
• Create small to medium sized land only
• Limited supply, can only be available upon quarry
closure.
• Needs good planning

適合
• 沒有影響現有土地用途
• 只能創造小到中型土地
• 只可利用關閉了的石礦場，這模式提供的土地數量有
限
• 需要良好規劃

土地儲備概念

Rock Cavern Development Suitable
發展岩洞 • Though only affecting existing government land, difficult
to justify relocation of facilities without planned land use
of released site
• Release land for existing facility and its surrounding area
that are now sterilized for development

合適
• 雖然只影響現有的政府土地，但如果對釋出的土地沒
有預先計劃土地用途，設施搬遷難被接受
• 釋放現在設施的土地及其附近土地的發展力

土地儲備概念

Reclamation Most Suitable
填海 • No impact on existing land use
• Good for large reserve
• Need to reduce and mitigate impact on marine ecology

非常適合
• 沒有影響現有土地用途
• 能創造大面積的土地儲備
• 要減少和紓緩對海洋生態的影響

Singapore Experience
新加坡經驗 “Marina Bay” in history 濱海灣的歷史
1991 Revised Concept Plan
1991年修改概念圖

Further reclamation
進一步填海

Singapore Experience
新加坡經驗 Subsequent DGPs 其後的DGPs

The concept of white site
 Allow market forces to decide
on the use of these very
prime site in relation to future
demand

“White site”的概念
 以市場力量來決定這黃金地
段對將來的需求的用途

Marina Bay Integrated Resort
濱海灣綜合渡假村
1970’s
Concept of reclaiming Marina Bay was born
濱海灣填海構思誕生

1991
Further reclamation took place to create nicer
inner bay environment
進一步填海以塑造更優美的內港

2000
No gambling is allowed; financial as theme
不許進行賭博活動; 以金融作主題

2005
National Address: Invite gambling, international
competition for casino development
官方著手引入賭權，進行國際性設計發展比賽

2006
Gambling licence awarded to Sands
賭權牌照賦予金沙集團

Macau Experience
澳門經驗

• Regional opportunities
• High population density
• Limited land resources
• Further development in tourism
• Demand for improved
environment

• 區域機遇
• 高人口密度
• 土地資源有限
• 旅遊業持續發展
• 對改善環境需求

Macau Experience Date日期 Event 事件
澳門經驗 2008 Macau Government submit application for
reclamation
澳門特區政府提出填海申請。
Nov 2009 State Council approved Macau Government to
2009年11月 reclaim approximately 350 hectares of land to
build a new town in Macau
國務院批覆同意澳門特區政府填海造地約350
公頃建設澳門新城區。
Dec 2009 to Stage 1: Concept Stage
Nov 2010 Develop concept plan on new town, carry out
2009年12月 Stage 1 Public Consultation
至2010年11 第一階段：概念階段
月提出新城發展定位和概念性用地規劃方向，
進行第一階段公眾諮詢。
Dec 2010 to Stage 2: Draft Development Plan
Dec 2011 Review purpose, principle and strategy of new
2010年12月 town planning, refine draft development plan
至2011年12 and carry out Stage 2 Public Consultation.
月第二階段：規劃草案
檢討新城區規劃的目標、原則以及空間策略。
進一步完善規劃草案內容，啟動第二階段公
眾諮詢。
2012 Stage 3:
Reclaimed areas are divided into five zones, located at Technical studies and Stage 3 Public
East & South of Macau Peninsula Island, and North of Consultation
Taipa, with total area of approximately 350 hectares. 第三階段：規劃方案
填海區共分為五塊，分別位於澳門半島東、南，以針對多項技術內容進行深化及論證，並舉行
34
及氹仔的北面，總面積約為350公頃。第三階段公眾諮詢。

Macau Experience
澳門經驗

Central Government: “Building a new town in Macau demonstrates the
excellence of „One Country Two Systems‟, an important measure in relieving
the problem of land shortage for the Macau Government and improving quality
of life for the citizens, beneficial to the government in responding to financial
crisis, maintaining stable and rapid economic development, and promoting
social harmony and stability.”

Macau Government: “The Government will reserve reasonable amount of land
in the newly reclaimed land, promote diversified industries that can enhance
economic but excluding gambling. Reserved land to build public housing,
increase cultural, recreational, social, educational and infrastructural facilities;
increase green leisure space, enhance environmental protection, improve
shoreline, increase city living space, improve living environment and enhance
quality of life.”

中央政府：“建設澳門新城區是發揮｀一國兩制´優勢，緩解澳門特區土地資源嚴重稀
缺、改善居民生活質量的重要舉措，有利澳門特區應對金融危機，保持經濟平穩較快
發展，促進社會和諧穩定。”

澳門特別行政區：“政府在新填海土地中將預留適量的土地，發展有利促進經濟多元
進程的相關產業，但不包括博彩業。預留土地建設公共房屋，增加文化康體、社會教
育、交通基建等公共設施；增加澳門的綠化休閒空間，加強環境保護，美化海岸景
觀，擴大城市生活空間，改善人居環境，提升居民綜合生活質素。”

優化土地供應策略專題討論 2︰土地儲備 Enhancing Land Supply Strategy Topical Discussion 2: Land Reserve

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