Summary of Discussion on Comprehensive Development Area (CDA)

Summary of Discussion on Comprehensive Development Area (CDA)

This position paper serves to clarify some misconceptions on the CDAs and explore the possible way forward.  The CDA zoning was first introduced in Outline Zoning Plans in 1976 with the key objective to facilitate urban restructuring and to phase out incompatible development and non-conforming uses.  They are designated after careful consideration of various factors as the planning intention for the area, land status, ownership and other development constraints, including the likely prospect for implementation.  They will only be designated where there are no better alternative zoning mechanisms to achieve the desired planning objectives.  As such, the concept of CDA brings us to a better and comprehensive planning.  There have been CDAs successfully implemented.  The crux of the matter emerges from some implementation difficulties on land assembly and provision of infrastructure, and the review of CDAs is necessary.

1.          Planning Objectives of CDA

 CDA zoning has its planning objectives to achieve planned layout and land use mix development in a comprehensive manner including the provision of the much needed community facilities and open spaces which would otherwise not be provided through individual development under other zonings.

Most of the existing CDA zones are in fact proposed both by the Government and the private sector to facilitate redevelopment.  Such zoning provides opportunities for developers to assemble land for redevelopment.

2.         Successful Implementation of CDA

There are a number of CDA zones that have been fully or partially completed.  Large residential developments include Tai Koo Shing in Quarry Bay and Whampao Garden in Hung Hom.  The International Finance Centre (IFC) in Central is a remarkable example of successful commercial development that was executed under CDA.  For phased development, Kowloon Station and Kai Yuen Street in North Point (Fleur Garden) are some recent examples, and early phase of the entire CDA development at Kai Yuen Street was completed without jeopardizing the development potential of future phase or the overall planning objectives.  The West Kowloon Terminus atop the Express Railway Line is another CDA in the pipeline.

3.         Infrastructural and Land Administration Hurdle

 The hurdle of slow implementation and land supply arises from the land assembly problem and the provision of infrastructure that are affecting the completion of planned development.  The problem does not lie in the zoning of the CDA.  As such, focus should be put in addressing the infrastructure and the land administration issues.

 HKIP advocates a holistic planning and people centric approach to set out the overall land use and development framework, supported by land use plans and planning statements to facilitate development and guide provision of infrastructure.  Delay in the provision of key infrastructures including railways and roads are posing impact on the pace of development as well as causing hardship to the daily commuting public.

On the land administration and assembly, private developers can use the Land (Compulsory Sale for Redevelopment) Ordinance as a tool for land amalgamation.  For area zoned CDA, it should be noted that there is a provision under Section 4(2) of the Town Planning Ordinance to enable land resumption for the implementation of CDAs.  In this, the Government should explore ways to suitably execute such provision in speeding up implementation and hence land supply.

4.         Planning Study to Review the Suitability of CDAs

To go beyond the current biennial desktop CDA review carried out by the Planning Department, Hong Kong Institute of Planners (HKIP) suggests conducting a planning study to review the existing CDA together with the adjoining areas of the CDAs, with a view to studying the suitability of retaining the CDA zoning, set out land use zonings for areas around with planned layout.

5.         Way Forward to Speed up Implementation

 To speed up CDA development, HKIP encourages wider discussion between developers and participation of government departments under streamlined processes before submission of development proposal for approval. 

 For CDAs in the rural areas, the establishment of an authority with power similar to the Urban Renewal Authority may help speeding up land resumption for redevelopment in the New Territories.  Land use plans should be prepared for those redevelopment areas including already designated CDA zones for approval of Town Planning Board, and act as basic for implemented and provision of infrastructure.

Formulation of a vetting mechanism to examine if proposals submitted by private developers for public/private partnership (i.e. housing mix) can meet the planning requirements and public purposes to warrant government support in land assemble.  

Some of HKIP's concerns on development were included in our submission to government on land supply.  We agree land resumption is affecting development, however, without suitable safeguard and consultation, the suggestion to use land resumption power of URA to assist private developers to assemble land is simply premature and does not help to address the pressing land supply problems.

Public Affairs Committee
Hong Kong Institute of Planners
18 August 2021

有關「綜合發展區」的討論摘要

本立場書旨在澄清一些對「綜合發展區」的誤解，並探討可能的未來方向。當局於一九七六年開始把「綜合發展區」地帶納入分區計劃大綱圖內，其主要目的是促使市區重整，以及逐步淘汰互不協調及不符合規劃意向的用途。訂立「綜合發展區」時，會詳細考慮各方面因素，例如當局在有關地點的規劃意向、土地類別、業權，以及其他發展限制（包括落實發展的機會）。只會在沒有其他更理想的機制可達致規劃目標的情況下，才會把某幅土地指定為「綜合發展區」地帶。因此，「綜合發展區」的訂立為我們帶來更好、更全面的城市規劃。事實上，已經有部分「綜合發展區」成功實施。問題的關鍵在於併合土地和提供基建設施方面有重大困難，各「綜合發展區」也需要適時檢討。

1.          「綜合發展區」地帶的規劃意向

 「綜合發展區」的規劃目標是實現綜合規劃藍圖和混合土地用途發展，包括其他地帶內個別發展未能提供的社區設施和休憩用地。

 大部分現有的「綜合發展區」地帶實際上是由政府和私營機構提議，以促進重新發展。這個土地用途地帶為發展商提供了併合土地進行重建的機會。

  2.         「綜合發展區」地帶的成功例子

 事實上，許多 「綜合發展區」已經全部或部分落成。大型住宅發展項目包括鰂魚涌太古城和紅磡黃埔花園。位於中環的國際金融中心 (IFC) 是「綜合發展區」下商業發展的一個成功例子。近期的分期發展項目則包括九龍站及北角繼園街柏蔚山。繼園街「綜合發展區」項目的第一期發展，並沒有影響將來位於該地帶的其他地段的發展潛力或整體規劃目標。另一個正在籌備的「綜合發展區」發展項目為廣深港高速鐵路西九龍站上蓋項目。

3.         提供基建設施和土地行政的難題

 現時土地供應推展緩慢的難題在於土地合併和提供基建設施時遇到困難，從而影響已規劃的發展項目。問題並非源於訂立「綜合發展區」地帶。因此，社會的討論重點應放在解決提供基建設施和土地行政的問題上。

香港規劃師學會提倡以全面綜合的規劃和以人為本的方式來制訂整體土地用途和發展綱領，並輔以土地用途圖則和規劃綱領，以促進發展和指導基建設施的提供。延後鋪設鐵路和公路等基建設施，不但會影響發展進度，也為市民的日常通勤帶來不便。

在土地行政和併合土地方面，私人發展商可利用《土地(為重新發展而強制售賣)條例》作為土地合併的工具。就「綜合發展區」地帶而言，《城市規劃條例》第 4(2) 條亦載有為落實「綜合發展區」發展而收回土地的條文。對此，政府應探討如何妥善執行有關條文，以加快落實和增加土地供應。

 4.         檢討各「綜合發展區」的規劃研究

除了由規劃署每兩年一次所進行的「綜合發展區」地帶檢討，香港規劃師學會建議進行一項規劃研究，以檢討現有各幅「綜合發展區」以及毗鄰的地區，研究保留作「綜合發展區」地帶的適切性，並對周邊的土地用途地帶作整體規劃。

5.         加快實施的未來方向

 為加快「綜合發展區」發展，香港規劃師學會建議訂立簡化程序，鼓勵發展商在提交發展建議作批准前，與相關政府部門作更廣泛的討論。

 至於新界鄉郊地區的「綜合發展區」項目，如能成立一個類似市區重建局的法定機構，可能有助加快收回土地以進行重建。該些重建地區，包括已劃為「綜合發展區」的地帶，應準備土地用途圖則供城市規劃委員會核准，並作為實施和提供基建設施的基礎。

 建議制定審查機制，以省視私人發展商所提交的公私營合作混合房屋發展的建議是否符合規劃要求和公共用途，以獲取政府支持該些土地合併方案。

部分香港規劃師學會的關注已列於我們就土地供應向政府提交的文件中。我們認同收回土地能加速發展；然而，在未有適當的保障和諮詢的情況下，利用市建局的土地收回能力以協助私人發展商合併土地的相關討論並不成熟，亦無助解決現時迫切的土地供應問題。

公共事務委員會
香港規劃師學會
二零二一年八月十八日