Hong Kong’s Transit-Oriented Development (TOD) Policies and Implementation: A Model for Sustainable Urban Planning

Introduction:

Hong Kong, a bustling metropolis known for its skyscrapers and vibrant culture, is also a global leader in sustainable urban planning. At the heart of its success lies its public transportation system, which is among the most efficient and reliable in the world. The city’s Transit-Oriented Development (TOD) policies have played a crucial role in shaping its urban landscape, fostering sustainable growth, and reducing car dependency. This article explores Hong Kong’s TOD policies, strategies, and implementation mechanisms, focusing on its innovative approach to value capture and land use planning. It also discusses how Hong Kong’s TOD model can serve as a blueprint for other cities striving for sustainable urban development.

Background on Transit-Oriented Development (TOD):

TOD is a planning approach that promotes compact, mixed-use development around public transportation hubs. By encouraging dense, walkable communities with easy access to public transit, TOD aims to reduce car dependency, alleviate traffic congestion, and create more sustainable urban environments. Key components of TOD include high-quality public transportation, mixed land uses, pedestrian-friendly design, and compact development patterns.

Hong Kong’s Public Transportation System:

Hong Kong boasts one of the world’s most efficient and extensive public transportation systems, comprising buses, trams, ferries, and the iconic Mass Transit Railway (MTR). The MTR, in particular, is a lifeline for the city’s residents, serving millions of passengers daily with its extensive network of rail lines. The integration of various modes of public transport is a hallmark of Hong Kong’s transit system, ensuring seamless connectivity and convenience for passengers.

TOD Policies and Strategies in Hong Kong:

Hong Kong’s TOD policies are guided by the principles of sustainable development, aiming to create vibrant, liveable communities with a high quality of life. Key strategies employed by the government include:

1. Land Use Zoning Regulations: Strict land use zoning regulations in Hong Kong encourage high-density development around transit nodes. The government designates areas around major transport hubs as “Comprehensive Development Areas,” where mixed-use developments are permitted to create vibrant, pedestrian-friendly neighbourhoods.
2. Intensive Land Use: Hong Kong’s limited land supply necessitates intensive land use to accommodate its growing population. TOD principles guide the development of high-rise residential, commercial, and mixed-use buildings, maximizing land efficiency while minimizing urban sprawl.
3. Mixed Land Uses: TOD projects in Hong Kong often feature a mix of land uses, including residential, commercial, and retail spaces, ensuring that residents have access to essential services and amenities within walking distance.
4. Affordable Housing Near Transit: Hong Kong’s public housing program includes provisions for affordable housing developments near MTR stations, ensuring accessibility for low-income residents.
5. Transit-Oriented Design Guidelines: Hong Kong’s Planning Department has formulated design guidelines that promote pedestrian-friendly environments, with an emphasis on walkability, accessibility, and active street life. These guidelines ensure that developments around transit nodes integrate seamlessly with the surrounding urban fabric.
6. Integrated Transport Infrastructure: The seamless integration of various modes of public transportation, including the Mass Transit Railway (MTR), buses, ferries, and trams, ensures convenient access to transit hubs from all parts of the territory. Intermodal connectivity enhances the attractiveness of TOD areas and reduces reliance on private cars.

Value Capture Mechanisms in Hong Kong’s TOD Projects:

One of the key success factors of Hong Kong’s TOD model is its innovative approach to value capture. Hong Kong’s approach to Value Capture involves the government’s active role in land acquisition and development. By leveraging the increase in land value due to public investments, Hong Kong has been able to finance its extensive public transport system and urban infrastructure. This is achieved through mechanisms such as:

1. Rail + Property Development (R+PD) Model: This model involves the government or a public transport agency (like MTR Corporation Limited) owning the transit system and the land around it. They then develop or lease the land for commercial or residential purposes, capturing the increased land value resulting from improved transit access.
2. Land Auctioning: The government can auction off land near transit stations with planning permissions that allow for higher-density development, capturing the increased land value for public revenue.
3. Premiums on Land Use Conversion: When land use is converted to higher-density developments, a premium can be charged to capture part of the increased land value due to transit access.
4. Development Rights Transfers: This involves transferring development rights from low-density areas to high-density areas near transit, allowing developers to build taller or denser buildings in exchange for public benefits or contributions.
5. Betterment Levy: A tax imposed on landowners in areas that benefit from improved infrastructure, capturing some of the increased land value.
6. Infrastructure Financing Districts (IFDs): IFDs allow local governments to issue bonds to finance infrastructure improvements in a specific area. The increased property tax revenue from the improved area is then used to repay the bonds.

These mechanisms, when implemented effectively, can help fund transit infrastructure and improvements, encourage transit-oriented development, and make public transportation more financially sustainable.

Case Studies of TOD Projects in Hong Kong:

Hong Kong stands as a compelling case study in urban planning, particularly in dealing with high population density. With 7.4 million inhabitants spread over 1103 km², Hong Kong boasts a population density of 27,000 people per km². The city’s approach to sustainable transport is exemplified by its Mass Transit Railway (MTR) system, which commenced construction in the late 1970s. Today, the MTR spans 256 km, serving as a vital transport network for 5 million daily commuters. This integrated system of 96 stations not only facilitates transportation but also acts as hubs for living and working, embodying the “rail + property” or “rail village” development model.

Hong Kong’s planning efforts primarily revolve around rejuvenating the old city and developing new towns. Over the years, four main types of Transit-Oriented Development (TOD) have emerged, each with distinct characteristics and planning considerations.

1. “Plug-In” TOD in the Old City: Mong Kok Station

Mong Kok Station embodies the “plug-in” TOD model, where the MTR was seamlessly integrated into existing dense urban areas. Located at the heart of the Kowloon Peninsula, Mong Kok was historically a bustling retail area. The MTR station’s catchment area of 800m overlaps with several other stations, creating a dense network of mixed-use buildings. Despite constraints such as small floor plates ranging from 100-150 sq.m, the area boasts 20-30 story buildings with commercial spaces on lower levels and residential units above. 

2. City-Edge TOD in Old City Expansion: Olympic Station

The case study on Olympic Station exemplifies the concept of City-Edge Transit-Oriented Development (TB-TOD) within the context of old city expansion in Hong Kong. Olympic Station is strategically located on reclaimed land, extending from Tai Kok Tsui and Mong Kok, parts of the old city, towards the city’s edge. Here’s a breakdown of the key points:

Olympic Station is situated on reclaimed land, connected to its catchment area by six pedestrian bridges. Olympic Station in Hong Kong exemplifies City-Edge Transit-Oriented Development (TB-TOD) in old city expansion, with a catchment area of 600-800 meters and a Gross Floor Area (GFA) of 15,660 square meters. The station connects to surrounding areas via six pedestrian bridges, serving newly developed residential estates with approximately 11,000 living units. High-rise residential blocks offer sea views, complemented by tall office buildings and shopping malls. The station’s design prioritizes pedestrian connectivity, with all exits leading to shopping malls and commercial areas. The development includes a shopping mall divided into three phases, tailored to attract local and international visitors, and hosts community activities to create a vibrant atmosphere.

3. One-Building TB-TOD: Kowloon Station

Kowloon Station serves as a prime example of a “One-Building” Transit-Oriented Development (TB-TOD) in Hong Kong. Occupying 13 hectares of land with a total floor area of nearly 1.7 million sq.m, the megastructure at Kowloon Station encompasses a vast array of functions within a single building complex. It includes a three-story public transport interchange, an MTR station, a shopping mall, an 18-meter-high rooftop garden, 18 residential skyscrapers (142-256m high), and two mixed-use buildings (270m) containing hotels, serviced apartments, and offices. The centrepiece of this development is the International Commerce Center (ICC), the tallest building in Hong Kong, which adds a distinctive landmark to the city’s skyline. This integrated and compact design maximizes land use efficiency while providing a wide range of amenities and services to residents and visitors alike.

4. Suburban TOD in New Areas: Tung Chung Station

Tung Chung Station, serving as the terminal of the Tung Chung line, exemplifies suburban TOD in new areas. Originally a rural area, Tung Chung was developed as a new town with a population of about 150,000. The TOD planning around Tung Chung Station emphasizes mixed-use development, including high-rise residential buildings, a shopping mall, and municipal facilities. The area’s growth is expected to continue, positioning it as a key node in Hong Kong’s transportation network.

Conclusion:

Hong Kong’s experience with TOD offers valuable insights for cities around the world seeking to enhance their urban environments. By focusing on compact, mixed-use development around transit nodes and leveraging innovative value capture mechanisms, Hong Kong has successfully created sustainable, liveable communities that prioritize public transportation and pedestrian-friendly design. As cities grapple with the challenges of urbanization and climate change, Hong Kong’s TOD model serves as a beacon of hope, demonstrating that sustainable urban planning is not only possible but also essential for the future of our cities.