LegCo Affairs - Questions
棕地作業 Operations on brownfield sites


以下是一月十五日在立法會會議上盧偉國議員的提問和署理發展局局長廖振新的答覆:
  
問題:
 
  規劃署於去年十一月公布的《新界棕地使用及作業現況研究》報告指出,全港有7 373幅有作業營運的棕地,所涉面積約為1 414公頃,並提供約52 000個職位。當局表示會協助受政府發展項目影響的棕地作業營運者另覓用地重置其業務,包括在大型發展項目中預留適宜興建多層樓宇的用地或露天用地,供重置該等棕地作業。就此,政府可否告知本會:
 
(一)有否評估已預留適宜興建多層樓宇的用地是否足以安置有關的棕地作業,以及有否預留足夠的露天用地容納不能重置到多層樓宇的棕地作業,特別是那些不可或缺的作業(例如建築材料或大型建築器械的貯存);如有,詳情為何;如否,原因為何;
 
(二)有否評估有多少項棕地作業會在政府收回有關棕地後被迫結業;如有,詳情及所涉行業為何;如否,原因為何;及
 
(三)有否因應上述報告所載結果,就整合棕地作業進行詳細規劃;如有,詳情為何;如否,原因為何?
 
答覆:
 
主席:
 
  使用棕地作較高密度的房屋或其他用途能釋放新界土地的發展潛力,但由於九成棕地有經濟活動,支援着不同行業,因此發展棕地的同時亦要處理好棕地作業問題。
   
  根據政府現行政策,受政府發展清拆計劃影響的合資格棕地作業經營者,可領取特惠津貼或按法例提出法定補償申索。財務委員會在二○一八年七月批准了大幅改善受影響棕地作業者的特惠補償安排。
   
  棕地作業屬商業運作,尋覓經營地點屬市場行為,一如其他受影響的商業運作,政府的基本政策是透過向合資格的業務經營者提供金錢補償,協助經營者作出籌劃,政府不會為受影響的商業運作提供「一換一」調遷安排。事實上,目前土地供應緊絀,期望政府發展棕地時提供「一換一」調遷安置亦不切實際。
   
  然而,在宏觀規劃層面,政府會預留土地或建築樓面面積以支持相關作業(包括仍有經濟需求但要遷離的棕地作業)的可持續發展。除在洪水橋/厦村及元朗南新發展區分別預留61及11公頃土地,作物流設施、港口後勤、貯物及工場等用途外,我們會繼續從大型發展項目中,選取面積較大而交通相對可達並設有基建設施的土地,藉此為棕地作業提供運作空間。其中,我們將於一月二十日向發展事務委員會簡介龍鼓灘近岸填海工程項目,當中建議亦包括提供集中、有序及更具土地使用效益的場地予棕地作業。
   
  就盧偉國議員提問的各個部分,現回覆如下:
 
(一)根據規劃署早前公布《新界棕地使用及作業現況研究》(下稱《棕地研究》),若面臨清拆,百分之六十三棕地作業受訪者表示會另覓地方繼續經營,百分之四十三受訪者表示其作業需在露天場地營運。在洪水橋/厦村及元朗南新發展區預留的72公頃土地,大部分會用作發展多層工業樓宇,餘下用地可作露天貯物。由於發展多層樓宇的用地地積比可高達五至七不等,有助填補因發展棕地而減少的作業面積。
 
  除新發展區內預留的露天貯物存用地外,運作上未能「上樓」的受影響棕地作業者亦可考慮搬遷至新界其他地區劃作「露天貯物」的用地(註一)。此外,如物色到的搬遷地點座落其他地帶,受影響棕地作業者可向城市規劃委員會(城規會)提出規劃申請。發展局會協調相關部門從規劃和土地事宜上向申請者提供諮詢和加快審批流程。城規會會按一般稱為「13E規劃指引」(註二)處理這些申請。規劃署正根據《棕地研究》結果檢視「13E規劃指引」,包括如何有效引導相關行業至合適營運場地,避免棕地擴散。
 
(二)根據《棕地研究》,百分之十受訪棕地作業者表示若面臨清拆會結業。
 
  各個新發展區項目的棕地正容納着不同行業,這些行業多年來一直依賴棕地的低廉租金。整合它們至多層樓宇會推高經營者的租金成本,令傳統或邊際利潤較低的行業感到壓力,甚或面臨淘汰,純以市場主導模式發展和營運多層樓宇可能難以照顧所有棕地行業的需要。因此,我們考慮借助市場力量發展多層樓宇之餘,亦會研究應否及如何引入適當土地用途、租客和租金等要求,以確保建成的多層樓宇能照顧棕地作業者的實際運作情況。為此,政府即將展開市場意向調查,以探測在不同情況及涉及不同合約要求及招標條款下,市場就發展及營運為主要棕地業務而設的多層樓宇的投資意向。我們希望在今年年中可以向發展事務委員會匯報研究的結果及發展路向。
        
(三)總的來說,我們會循三個主要方向為整合棕地作業做好土地規劃工作。第一,我們會繼續進行土地用途檢討並落實經改劃的用途。這方面的工作包括全力推動新發展區項目,開發得來的土地除應付房屋需要外,亦能提供大面積土地以更具土地使用效率方式整合棕地作業。另外,我們會繼續在其他大型發展項目,例如藍地石礦場、新界北新發展區和剛才提及的龍鼓灘近岸填海工程項目等,預留用地整合棕地作業。
 
  第二,我們會按照市場意向調查結果並因應相關行業的運作需要,制訂多層樓宇的發展和營運模式,讓棕地作業得以於多層樓宇內運作,讓我們的土地使用更具效能。
   
  第三,正如上文提及,規劃署正檢視「13E規劃指引」,考慮如何引導未能遷入多層樓宇的棕地作業至適合的運作場地。
   
  多謝主席。
 
註一:扣除已納入洪水橋/厦村、元朗南及新界北新發展項目內的「露天貯物」用地,新界其他地區仍有171公頃「露天貯物」用地。
 
註二:該規劃指引全名為《擬作露天貯物及港口後勤用途而按照城規會條例第16條提出的規劃申請》規劃指引。

 

Following is a question by the Hon Lo Wai-kwok and a reply by the Acting Secretary for Development, Mr Liu Chun-san, in the Legislative Council on Jan 15:

 
Question:
 
     A report of the Study on Existing Profile and Operations of Brownfield Sites in the New Territories, published by the Planning Department in November last year, pointed out that there were 7 373 active brownfield sites throughout the territory, involving an area of around 1 414 hectares and providing about 52 000 jobs. The authorities have indicated that they would assist brownfield operators affected by government development projects to identify alternative sites for reprovisioning of their business, including reserving, in major development projects, sites suitable for the development of multi-storey buildings (MSBs) or open-air sites for reprovisioning of such brownfield operations. In this connection, will the Government inform this Council:
 
(1) whether it has assessed if the reserved sites suitable for the development of MSBs would be sufficient for accommodating the brownfield operations concerned, and whether it has reserved sufficient open-air sites for accommodating those brownfield operations which cannot be reprovisioned in MSBs, in particular those indispensable operations (e.g. storage of construction materials or large construction machinery); if so, of the details; if not, the reasons for that;
 
(2) whether it has assessed the number of brownfield operations that will be forced to close down upon resumption of the relevant brownfield sites by the Government; if so, of the details and the industries involved; if not, the reasons for that; and
 
(3) whether it has, having regard to the findings in the aforesaid report, carried out detailed planning for the consolidation of brownfield operations; if so, of the details; if not, the reasons for that?

Reply:
 
President,
 
     Utilising brownfield sites for higher-density housing or developments can unlock the development potential of land in the New Territories. However, as 90 per cent of brownfield sites are used for economic activities supporting different industries, brownfield operations have to be properly tackled in the course of pursuing developments on brownfield sites.
      
     According to the Government's prevailing policy, eligible brownfield operators affected by clearances under the Government's development programmes may receive ex-gratia allowances, or make statutory claims for compensation. The Finance Committee approved in July 2018 an arrangement which significantly enhances ex-gratia compensation for affected brownfield operators.
      
     As brownfield operations are business initiatives, their search for operating space is a market behaviour. As in the situations of other affected business operators, the Government's fundamental policy is to provide monetary compensation for eligible business operators to assist them in making their own arrangements upon clearances, instead of providing "one-on-one" re-provisioning arrangements for the affected business operations. In fact, given the land scarcity, it is unrealistic to expect the Government to offer "one-on-one" re-provisioning in the course of pursuing developments on brownfield sites.
      
     That said, at a macro planning level, the Government is reserving land or floor space to support the sustainable development of relevant industries, including brownfield operations which are in demand in our economy but need to relocate. In addition to the land respectively reserved in Hung Shui Kiu / Ha Tsuen (HSK/HT) and Yuen Long South (YLS) New Development Areas (NDAs) of 61 and 11 hectares for logistics facilities, port back-up, storage and workshops, we will continue to identify large land parcels with good accessibility and infrastructure in major development projects to provide space for brownfield operations. In this connection, we will brief the Panel on Development on the Lung Kwu Tan near-shore reclamation project on January 20. The recommendations also include supplying land for concentrated, orderly, and more land-use-efficient accommodation for brownfield operations.
      
     My reply to the various parts of the question raised by the Hon Lo Wai-kwok is as follows:
 
(1) According to the Study on Existing Profile and Operations of Brownfield Sites in the New Territories (Brownfield Study) promulgated earlier by the Planning Department (PlanD), 63 per cent of brownfield operation respondents said they would find alternative sites to continue operation upon clearances. 43 per cent of the respondents said that they saw the need to operate in open-air sites. In this regard, most of the 72 hectares of land reserved in HSK/HT and YLS NDAs will be used for development of multi-storey buildings (MSBs), and the remaining area may be used for open storage. As the plot ratio of the land used to develop MSBs range from 5 to 7, it will help compensate for the reduction in industrial floor space due to development of brownfield sites.
 
     Apart from the open storage land reserved in the NDAs, affected brownfield operators who are unable to relocate their businesses to MSBs may also consider other areas zoned "Open Storage" in the New Territories (Note 1). In addition, if the site identified for relocation is under another zoning, the affected brownfield operators may submit a planning application to the Town Planning Board (TPB). The Development Bureau will co-ordinate relevant departments in advising the applicants from the planning and land perspectives and help expedite processing of applications by the TPB in accordance with the Planning Guidelines No. 13E (Note 2). The PlanD is reviewing the "Planning Guidelines No. 13E" with reference to the results of the Brownfield Study, and is seeing how to guide the relevant industries to operate in suitable sites to avoid proliferation of brownfield operations.
 
(2) According to the Brownfield Study, 10 per cent of the brownfield operator respondents said that they would terminate their businesses upon clearance.
 
     Brownfield sites within various NDA projects are accommodating different industrial operations, which have been relying on the low rent for years. Consolidating these operations into MSBs will drive up the rental costs of operators, posing pressure on traditional or lower-margin industries which may even be phased out. Development and operation of MSBs under a market-led approach may not, on its own, address the needs of all brownfield industries. Therefore, when considering leveraging the use of market forces to develop MSBs, we will also study whether and how to introduce appropriate conditions, such as land user restriction, tenant selection and rental requirements, to ensure that the commissioned MSBs can cater for the actual operation of brownfield industries in future. To this end, Government will launch a market sounding exercise shortly to ascertain the market interest towards developing and operating MSBs for key brownfield businesses under different scenarios involving different contractual requirements and tender conditions. We hope to brief the Panel on Development by mid-2020 on the findings and way forward.
 
(3) In sum, we are following three main directions in the work of land use planning to consolidate brownfield operations. First, we will continue our land use reviews and implement the planned use after rezoning. This will include spearheading the NDA projects in full steam.  Apart from meeting housing needs, the newly developed land can also supply large land parcels for consolidating brownfield operations in a more land-use-efficient manner. In addition, we will continue to reserve land for brownfield operations in other major development projects, such as Lam Tei Quarry, the New Territories North NDA, and Lung Kwu Tan near-shore reclamation just mentioned.
 
     Second, we will formulate the development and operation models of MSBs with reference to the results of the marketing sounding exercise and the operational needs of the related industries, so that brownfield operators may re-establish their businesses in MSBs in future and enhance the land-use efficiency.
      
     Third, as mentioned above, the PlanD is reviewing the "Planning Guidelines No. 13E" to consider how to channel brownfield operations to more appropriate locations if they are unable to move into MSBs.
      
     Thank you, President.
 
Note 1: Excluding those "Open Storage" sites within HSK/HT, YLS and New Territories North NDAs projects, there are still 171 hectares of "Open Storage" sites in other areas of the New Territories.
 
Note 2: The full name of the Planning Guidelines is "Town Planning Board Guidelines for Application for Open Storage and Port Back-up Uses under Section 16 of the Town Planning Ordinance".

使用條款 Terms of Use | 私隱政策 Privacy Policy
立法會盧偉國議員 博士 工程師 (工程界)
Legislative Council Ir Dr Hon Lo Wai Kwok (Functional Constituency - Engineering)