Focus
Background
The Closed Area is undoubtedly the most mysterious area in Hong Kong. Designated as a closed area since 1951, the area has been, for almost 60 years, only be accessed with a special permit. Despite the rapid transformation of the neighbouring Shenzhen from an inconspicuous farming village to a glittering megapolis, and the urbanisation to its south through a programme of new town development, the Closed Area is largely immune from urban encroachment. Lying languidly in solitude for decades, the area remains rural, lush and natural, and appears to be dragging behind the times of modernisation.
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The Closed Area with Futian Central Business District in the background |
When the Security Bureau announced in 2008 that about 2 400 hectares of land in the Closed Area would be released in phases, the destiny of the area is hung in the balance. Local people feel that they may have their days and yearn to reap from the benefits of opening up; the environmentalists want to safeguard what is probably the last piece of nature’s paradise; while many businessmen see the area a potential melting-pot for Hong Kong and Shenzhen, where business opportunities abound – and should be capitalised on.
It is amidst these conflicting quests from different sectors of the community that the Planning Department embarked upon the ‘Closed Area Study’. The study aims to formulate a land use planning framework, to establish a basis for preparing statutory town plans for the area before the phased release. Land use planning needs to take on a holistic approach, before a sustainable development plan can be achieved.
The land use options should be developed in the light of the area’s potential strategic role and developments in the surrounding areas. This includes the thriving Shenzhen on the other side of the boundary, our bustling new towns and the proposed new development areas, as well as the future development jointly pursued by the Hong Kong and Shenzhen Governments in Lok Ma Chau Loop currently inside the Closed Area. Yet, at the same time, the high ecological and cultural value of the area, a legacy of the past, is no less weightier a factor in the study process.
Opportunities and Constraints
While the natural hilly terrain in the area’s east and the wetland in the western part would pose constraints for building development and engineering works, the central flat land, with tracts of abandoned farmland and villages clusters, is easily perceived as an opportunity space for urban-type development. This is especially so when Hong Kong always needs developable land. The proximity to the existing boundary control facilities, as well as to the proposed one at Liantang/Heung Yuen Wai, would be a bonus. With the ever-increasing interaction between Hong Kong and Shenzhen, the area may have outstanding potential for the types of development to further enhance the functions of the two economic powerhouses.
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Farmland at Ta Kwu Ling |
Yet, the development constraints in the area should not be under-stated. Outpaced by the seemingly unstoppable urban growth to its north and south, the area manifests sheer contrasts, not just visual but also virtual, to its metropolitan neighbours. The ecological value of the area is well documented and needs no elaboration. But ecology aside, the sleepy villages dotted haphazardly in the central part also possess an element of innate charm and originality that few village type developments elsewhere can produce. In a nutshell, not just from the standpoint of environmentalists or sentimentalists, the uniqueness of the area does call for a high degree of prudence before deciding upon its destiny even in the eyes of the man-in-the-street.
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Rural Setting at Lin Ma Hang |
Apart from the areas of ecological significance and heritage, the presence of traditional burial grounds, cemeteries, fung shui woodlands and scattered land ownership, coupled with inadequate basic infrastructure do constrain development of any conceivable scale.
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Cluster of Urns |
Vision and Themes
When the conception of preserving such a precious green zone as a development buffer to serve as a visual relief to the dense concrete was still rudimentary, the study team had already begun to engage the community on the vision for the Study Area. Adopting a strategic planning perspective, the study then mooted the vision of ‘a belt of conservation, cultural heritage and sustainable uses between Hong Kong and Shenzhen’ for the Study Area. Underlying the vision are three supporting themes ‘strengthening nature conservation’, ‘conserving cultural heritage resources’ and ‘promoting sustainable uses’. Emphasis is given to the preservation of the valuable natural and cultural heritage resources within the area, but suitable developments to capitalise on these resources as well as the strategic boundary location and the growing cross-boundary interaction is an option not to be ruled out.
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Declared Monument – Residence of Ip Ting-sz |
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Possible re-uses of existing structures |
Engaging the Community
The study adopts a two-stage community engagement programme, with Stage 1 on the Draft Concept Plan and Stage 2 on the Draft Development Plan. Stage 1 Community Engagement was held between May and August 2008. Briefing sessions and public forums were arranged for a variety of stakeholders including rural committees, District Councils, Heung Yee Kuk, Country Parks Committee, Town Planning Board, Advisory Council on Environment, the Legislative Council, Shenzhen authorities, academic and professional bodies as well as the general public.
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Public forum |
But overlaid on all these pre-scheduled briefings and meetings was a more dynamic approach of community engagement. Even before the Study officially began, the Planning Department started dialogue with the villagers of all the 20 villages in the Study Area, the concerned non-governmental organisations, interested groups, etc. on a continual and interactive process. Knowing the inherent differences among the parties concerned, we believed that an early, continual and sincere engagement with these concerned groups would help the department in deriving a road map in a timely fashion.
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Site visit with local villagers |
Yet, the process of plan consultation was not a smooth ride. Some villagers turned out to be highly resentful, noting that the lifting of the closed area would only be superimposed by what they perceived as a conservation-bias plan. Petitions and protests against the concept plan of the study went alongside the progression of the local public forum. For some others adopting a more restrained approach, the voice for more development opportunities as a means to revitalise the local economy and improve their livelihood was also loud and clear.
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Petition from local villagers |
The responses from some local villagers were not beyond expectation. In fact, their demands are quite understandable. On the other hand, it is gratifying that other responses to the vision and concept plans for the area were generally positive and amicable. More so for some who had expressed admiration to the planning concepts and our effort in striking a balance between conservation and development, and supported it as the way forward in detailing the plan.
Based on the public comments and suggestions received, the proposals of the Draft Concept Plan were refined and further developed. Dialogue with the concerned villagers continued in parallel, in an attempt to explain to them the proposed development strategy in substance so as to assuage their concerns. Taking into account the results of the broad technical assessments, the Draft Development Plan was prepared for the Stage 2 Community Engagement, which was held in late 2009.
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Dialogue with local community |
Draft Development Plan – At A Glance
With wide community support, the vision and the planning concepts for the area were firmly established. However, turning the concept plan into a development plan as a mission to realise the vision is not an easy task. The Draft Development Plan aimed to provide a sustainable planning framework, while respecting the existing rural settings, local traditions and ways of life. The proposed land use framework would also bring business and employment opportunities and hence benefit the local economy. The existing natural and cultural resources also ought to be preserved and revitalised. While presumption against development in areas of high ecological value should continue to prevail, cultural and eco-tourism, leisure farming and developments of appropriate scale would be promoted elsewhere. Such developments would not only be a leisure attraction to residents of Hong Kong and Shenzhen, but also a retreat where the urban populace can appreciate and mix with nature. Capitalising on the strategic boundary location would also help strengthen economic integration of the two cities.
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Heritage Buildings at Heung Yuen Wai |
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Draft Development Plan |
Draft Development Plan – More Details
More specifically, the proposals in the western part focus on conservation and conservation-oriented recreational uses, including the protection of the wetlands and the fish ponds, at San Tin and Hoo Hok Wai. On the hill slopes of Ma Tso Lung, an eco-lodge development is proposed with views overlooking the picturesque wetlands. When completed, it will be the first of its kind in Hong Kong.
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Proposed eco-lodge at Ma Tso Lung |
Compared with the aquatic value in the west, the ecological value in the eastern part is sort of terrestrial. The study proposes the designation of Robin’s Nest as a country park, which will then form a continuous ecological link between Pat Sin Leng in North East New Territories and Wutongshan in Shenzhen.
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Robin’s Nest |
The study recommends preserving and strengthening the natural and cultural resources of the agricultural land and villages of heritage value in the central part of the area, while allowing for residential and tourism-related developments. Leisure farming, recreational activities and low-density housing developments are proposed.
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Leisure farming |
A 30-km long hiking trail to link the ecological attractions, buildings of architectural and historic interests and activity nodes in the area is also proposed, to promote cultural and eco-tourism in the area. Cycling tracks are likewise put forth. However, even applying a prudent approach in planning for the area, one has to accept that the specific location of the area that straddles the two large urban conglomerations, with the added advantages of the proximity to boundary crossing facilities and the improved efficiency in immigration procedures, could easily make any pleas for more intensive development irrefutable. To balance, the study puts forth the notion of three development corridors, respectively to take advantage of the direct connection to the existing boundary control points at Lok Ma Chau and Man Kam To, and the proposed one in Liantang/Heung Yuen Wai in the longer term. Such development corridors can be developed for commercial, retail, entertainment, wholesale centres, etc. to capture their locational characteristics.
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Hiking activities |
Way Forward
To strike a balance in planning is always not easy. Nonetheless, the draft development plan has been well-received by the majority of the community and the holistic planning perspective is also given much countenance by the public. After the prolonged and concerted coordination, the efforts throughout the study process eventually paid off. Accepting that there is always a limit to what can be achieved, the Planning Department will continue to engage the concerned parties to address their concerns as much as possible without compromising the intent of the planning concepts.
Where the long toil of planning study is about to recede, actions for preparing statutory plans and implementation have to set in. The boundaries of the Closed Area have effectively been the bounds of urban sprawl and unauthorised uses, and any diminution of which would urge our vigilance against the proliferation of any such unauthorised developments, in order not to degrade the environment of the area that is so well-protected. Any future building developments proposed in the area also need to be scrutinised to ensure their congruity with the natural environment.
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Closed Area restrictions to be lifted by phases |
Urban development and modern architecture have their appeal but so do the natural and heritage features. The plan for the would-be released Closed Area is not to re-establish yet another buffer area for wholesale rejection of developments, but rather to preserve a green oasis among urban development and at the same time, boost the local economy.
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An oasis in between urban development |
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