For discussion on Task Force on Land Supply

19 December 2017 Paper No. 14/2017

TASK FORCE ON LAND SUPPLY

Village Type Development

in the New Territories

PURPOSE

This paper provides Members with an overview of the land

zoned village type development in the New Territories (NT) and the
factors which may be relevant when considering the question as to
whether such land could be better utilised for more intensive
development.

BACKGROUND

Small House Policy

2. Under the Small House Policy, in general, a male indigenous

villager aged 18 years old or above who is descended through the male
line from a resident in 1898 of a recognised village in NT may apply to
the authority for permission to build for himself a small house on a
suitable site within his own village once during his lifetime 1. At present,
there are a total of 642 recognised villages in the territory.

3. Since the implementation of the Small House Policy in 1972,

as at September 2017, the Lands Department (“LandsD”) had executed a
total of 42 131 small house grants, with 8 823 applications being
processed and 2 707 applications pending processing. Based on the
small house applications approved in the past 10 years (i.e. between 2007
and 2016), about 86% of the cases involved private land granted by way
of Building License. Government land granted by way of Private Treaty
Grant took up about 11% while less than 3% of the approved applications
1
If the villager has his own land, he can apply for a Building License to build a small house on his
own land or exchange his land with Government. If he does not own any land, he can apply for a
Private Treaty Grant on government land, if available. At present, a small house should not exceed
three storeys and have a roofed-over area of not exceeding 65.03m2.

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involved land exchange.

VE and “V” Zones

4. In general, the construction of small houses is restricted to

areas within the Village Environs (“VE”) delineated administratively, as
well as the Village Type Development (“V”) zone as stipulated in
statutory town plans. VE refers to the area within a 300-foot radius
from the edge of the last Village Type House built in the recognised
village before the introduction of the Small House Policy on 1 December
1972. Separately, land within “V” zones on statutory town plans is
primarily intended for development of small houses by indigenous
villagers. “V” zones are drawn up having regard to a series of planning
factors including the location of existing villages, the delineation of VE,
the local topography, the existing settlement pattern, site characteristics,
the surrounding environment, environmental, transport and other
infrastructural constraints, as well as the estimate of demand for small
houses in the coming 10 years 2. The boundaries of “V” zones may not
necessarily coincide with those of VEs.

5. Currently, there are about 700 “V” zones with a total area of
about 3,380 hectares (ha) mainly distributed across the 642 recognised
villages (Plan 1). As at October 2017, about 60 % of land on “V” zones
is under private ownership, while about 40% are on government
land. Annex 1 provides a breakdown of “V” zones by district. From
time to time, there is misunderstanding that over 900 ha of unleased and
unallocated government land within “V” zones (based on statistics on
such unallocated and unleased land compiled in 2012) is lying idle and
wasted. It should be noted that a considerable portion of the land
involve empty spaces or passageways between existing small houses,
slopes, and other fragmented or irregular land parcels. Even if
individual land parcels are relatively more complete in shape, their
development potential may be confined by factors such as topography,
area, existing infrastructural constraints, etc. Annex 2 demonstrates
with the illustration of two examples why not all the unallocated and
unleased government land is suitable for small house development, let
alone other types of developments.

2
The ten-year forecast for small house demand is provided by the Village Representatives of
individual villages for Government’s reference.

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6. Applications from eligible indigenous villagers for building
small houses within the relevant VE and “V” zone may be considered.
Consideration may also be given to an application if the proposed small
house site lies outside a VE but is located within a “V” zone on the
relevant statutory plan, provided that the “V” zone concerned encircles or
overlaps with the VE. As regards sites within a VE but outside of a “V”
zone, depending on the requirements of the land use zone on which the
proposed small house site lies, the applicant may apply for planning
permission from the Town Planning Board (TPB), and the small house
application may also be considered if a planning permission is granted.

7. From time to time, questions have been raised about the

future demand for small houses. Under prevailing practice, relevant
Village Representatives would be asked to provide a forecast of demand
for small houses in the next ten years for consideration by Planning
Department in drawing up “V” zones on statutory town plans or by TPB
in vetting planning applications for small house development. That said,
the information received is only one of the many factors to be taken into
account by the Planning Department and TPB in dealing with the cases.
In practice, the implementation of the Small House Policy is subject to
availability of land an indigenous villager can apply for building a small
house and is not driven by the estimation of the number of eligible
indigenous villagers.

DEVELOPMENT POTENTIAL AND CONSTRAINTS OF “V”

ZONES

8. There is concern about the sustainability of the Small House

Policy when land suitable for accommodating low-rise 3-storey houses is
not unlimited. Questions have also been raised as to whether small
house development is an optimal use of scarce land resources in the light
of the general public’s keen demand for residential housing (including
public and private housing).

Village Expansion Area

9. To provide for better planning of village developments and

to cater for the housing needs of the indigenous villagers who do not own
land, the Village Expansion Area (VEA) scheme was introduced in 1981.
Under the VEA scheme, the Government would form suitable sites (on
government land and resumed private land) in accordance with village

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layout plans, and eligible villagers may apply for Private Treaty Grants of
Government land to build small houses. Over the years, the
Government has developed 36 VEAs for provision of around 2 000 small
house sites, of which close to 1 800 small houses were approved.
While the development of new VEAs have been frozen since 1999
pending a review of the Small House Policy, there have been suggestions
that the VEA scheme, compared to isolated, ad hoc applications for small
houses on scattered sites, does provide for better layout and
infrastructural planning as well as better utilization of land within a “V”
zone.

Increasing development intensity of small house developments

10. The development intensity of “V” zones is by their nature

low with each building restricted to three storeys (8.23 metre (m)). In
view of scarcity of land, there have been suggestions to increase the
development intensity of “V” zones by allowing “high rise” small house
developments, thereby achieving more optimal land use with the same
amount of land, and serving the same policy objective of catering to the
needs of indigenous villages.

11. In exploring the possibility for more dense residential

development in “V” zones, as with other new housing development, a key
consideration is whether the capacity of the existing transport network,
infrastructure (e.g. water, sewage) and other “Government, Institution or
Community” (G/IC) facilities in the surrounding can absorb the
additional population, and (if not) whether it is technically feasible to
enhance the capacity suitably. It is worth noting that in devising “V”
zone, as mentioned in paragraph 4 above, a range of factors including the
location of individual villages, compatibility with the surrounding land
uses, urban design, environmental and topographical constraints, the
provision of infrastructure, etc. has already been taken into account.
Proposed increase to the development intensity by permitting “high rise”
small house developments, even without any change to the site area,
would require detailed technical assessments to confirm the feasibility.

12. Planning consideration aside, it is noted that some in the

community may debate whether such “high rise” developments would go
against the rural setting expected for indigenous villages under the Small
House Policy.

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13. Currently, existing small village houses meeting, inter alia,
the dimension requirement of the Buildings Ordinance (Application to the
New Territories) Ordinance (Cap. 121) are exempt from certain
provisions of the Buildings Ordinance (Cap. 123) and its subsidiary
regulations, especially those concerning the need to obtain prior approval
and consent to the commencement of works from the Buildings
Department. Any proposed changes to the development model of small
houses will likely result in the structures deviating from the requirements
as stipulated in the existing Cap. 121, thus rendering them subject to the
full building control regime under Cap. 123. This implies that such
“small house” developments would need to adhere to all building
requirements which apply to other typical residential developments, such
as building heights, site coverage, plot ratio, lighting and ventilation, etc.,
unless another specified scheme or statutory control is devised for these
intensified “small house” developments.

Upzoning of “V” zones to alternative uses

14. Other than piecemeal approach to increasing development

intensity of individual site in “V” zones, there is suggestion that
consideration should be given to bring about major changes to the “V”
zones which occupy a vast area of relatively flat land in the NT, through
converting “V” zones to other land uses of higher density not bearing any
relationship to the Small House Policy. One argument for such
upzoning is to provide opportunity for comprehensive review and
enhancement in the development potential of the land in “V” zones,
similar to the approach for developing concentrated brownfield sites in
the NT or even New Development Area (NDA), in order to provide the
necessary infrastructural upgrading in support of high-density housing
and other land-efficient uses.

15. Given the scattered and irregular parcels of land within “V”
zones, to unleash the full development potential of the area and for major
infrastructural works, extensive land resumption and clearance are
inevitable, involving compensation and rehousing for eligible land
owners and households in the villages. Such upzoning and
transformation of “V” zones, if so pursued, will require detailed studies
and assessments to confirm the feasibility of all aspects. Coupled with
the necessary statutory processes in rezoning, road gazettal and
environmental impact assessment, the proposed conversion of “V” zones
would most probably take no less than 10 years to complete before the
land could become developable for high-density developments.

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16. In addition to the above planning and technical
considerations, any proposal on the upzoning of “V” zones to the extent
of releasing the land for alternative uses should be considered in the light
of the Small House Policy. As mentioned above, “V” zones are mainly
intended for small houses development by indigenous villagers.
Reducing the number or area of “V” zones would call into question
whether a similar amount of land is required for relocating or
accommodating villagers, thus leading to a zero-sum game in terms of
land supply.

Revisiting the Small House Policy

17. There are views suggesting that the Small House Policy
should be reviewed, having regard to the prevailing circumstances of
Hong Kong. Some opine that, in view of acute shortage of land and
housing, it would not be sustainable to cater for the self-perpetuating
demand for land for small house development in the long run.

18. The existing Small House Policy has been in operation for a
long period of time. Any review inevitably involves complicated issues
in aspects such as legal, environment, land use planning and demand on
land, as highlighted above; all of which require careful examination.
For any proposed change to the Small House Policy, it will likely be a
subject of intense debate and controversy that would take time to resolve.
Separately, given that the Small House Policy is currently subject to a
judicial review, the Government is not in a position to make any public
comment on issues that may prejudice its handling of the case.

ADVICE SOUGHT

19. Members are invited to note and offer comments on the

development potential and challenges in the planning and development of
land zoned village type development in NT.

Development Bureau
14 December 2017

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 「鄉村式發展」地帶的分佈
Distribution of "Village Type Development" Zone

圖例 Legend 深圳市
S ha Tau
沙頭

Ko
角河
k R
iver
CROOKED ISLAND
吉澳
沙頭 角 鴨洲
SHENZHEN SHI SHA TAU AP CHAU
KOK

規劃作「鄉村式發展」的土地範圍 長石咀
CHEUNG
SHEK TSUI
平洲
PING CHAU

吉澳海

Boundary of Land Zoned for "Village Type Development" 平 原河 er

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打鼓 嶺 榕樹凹
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v
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加州花園
Palm Springs 沙羅洞張屋
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FLAT
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THE BROTHERS SIU MO TO SOK
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CH
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bl
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SHAM SHEK on
g
TSUEN Ng
灣灣灣
跑馬 地
東涌道

HAPPY
VALLEY

梅窩 薄扶 林 WAN CHAI 渣甸 山
JARDINE'S 東區
SIL

大嶼山 大廟 灣
LOOKOUT
V

北果洲
POK FU
DISTRICT 東果洲
E

鑛 MINE

柴灣
MUI WO
EASTERN
R

LAM
灣 B

JOSS HOUSE BAY NORTH NINEPIN EAST NINEPIN

CHAI WAN ISLAND ISLAND

LANTAU ISLAND DISTRICT

AY

小西 灣
地塘 仔
TEI TONG TSAI
水塘
Res 香港島 SIU SAI 鐵篸 洲 佛堂
纜車

周公島 WAN FA
T 門
TIT CHAM TO
果洲群島
昂坪

二東 山
SUNSHINE ISLAND 數碼港
Cyberport 香港仔 HONG KONG ISLAND CHAU NG
MU
N
水塘 NINEPIN GROUP
YI TUNG 南果洲
SHAN 大潭水塘

TA
離島區 Aberdeen SOUTH NINEPIN

TH
鹿湖 華富 Res Group ISLAND

藍 塘G C HA
南山
喜靈洲

ON
Luk Wu
大澳 WAH FU
ISLANDS DISTRICT NAM SHAN
香港 仔

海 NN EL
HEI LING CHAU 黃竹 坑
TAI O 昂坪 東龍洲

峽
ABERDEEN WONG CHUK
NGONG PING HANG
TUNG LUNG
羗山 火藥洲 CHAU
KEUNG MAGAZINE 大浪灣
TU

ISLAND Tai Tam

N

SHAN BIG WAVE BAY

G

C
H
UN 芝麻 灣 Res Group
G
CHI MA WAN
RO
AD 鴨脷洲 深水灣

長沙
AP LEI CHAU DEEP WATER
BAY 南區
CHEUNG 貝澳 灣
SHA PUI O WAN SOUTHERN
N EL

海洋公園
東 DISTRICT
峽

Ocean
鹿洲 灣 EA 淺水灣
AN

博
Park
萬丈 布 石壁水塘 ST 熨波洲 石澳
寮海

REPULSE
LUK CHAU WAN
寮
CH

MAN CHEUNG Shek Pik LA MIDDLE ISLAND BAY

SHEK O
PO Reservoir
芝麻 灣 半 島
MM 海 鴨脷排
大頭洲
峽
A

A TAI TAU CHAU

MM

榕樹 灣 CH
西博

CHI MA WAN AP LEI PAI

二澳新村 PENINSULA AN
T LA

YUNG SHUE WAN

Yi O San 石壁 鹿洲 NE 五分洲
Tsuen
SHEK PIK LUK CHAU
L NG FAN CHAU
大潭灣
WES

塘福 廟 灣
TONG FUK MIU WAN TAI TAM BAY
舂坎灣
電力站
峽
EL

CHUNG HOM
大浪 灣
N

WAN
海 Power Station
AN

洲 銀洲
H

TAI LONG WAN 茶果洲

C

煎魚灣 長
TA

CHA KWO ROUND

雞翼角 澄碧邨 赤柱灣
北 長洲 ISLAND
AS

Tsin Yue CHAU

Wan Sea Ranch
AM

PEAKED HILL STANLEY BAY

AD

CHEUNG CHAU 灣
罟 Y
索 C
BA
NI
PI C
分流 下尾 灣
FAN LAU 南氹 HA MEI WAN
NAM TAM 狗髀洲
KAU PEI CHAU
赤柱
STANLEY

雙四門
南丫島 東澳灣
SHE UNG
SZE MUN
TUNG O WAN
LAMMA ISLAND
石鼓洲
SHEK KWU CHAU

小鴉洲 螺洲 蒲台群島 橫瀾島

SIU A CHAU 宋崗
BEAUFORT PO TOI ISLANDS SUNG KONG
WAGLAN
ISLAND
ISLAND

樟木頭
CHEUNG
MUK TAU

門
圓洲 洲 UN
孖洲 YUEN CHAU
螺洲白排 螺 M
AU
MA CHAU LO CHAU PAK PAI CH
索罟群島 LO

SOKO ISLANDS 蒲台
PO TOI
大鴉洲
TAI A CHAU
圓崗洲
YUEN KONG
CHAU
墨洲
MAT CHAU

頭顱洲
TAU LO CHAU

比例尺 SCALE
公里 5 2.5 0 5 10 15 20 公里 圖 Plan 1
Kilometres Kilometres
日期 Date: 21-11-2017
 Annex 1

Area of Village Type Development (“V”) zone by District Council

(as at 29 Nov 2017)

District Council Total Area

(ha)

Islands District 266

Kwai Tsing District 20

Kwun Tong District 8

North District 503

Sai Kung District 349

Sha Tin District 219

Southern District 5

Tai Po District 448

Tsuen Wan District 96

Tuen Mun District 226

Wong Tai Sin District 1

Yuen Long District 1,236

Total : 3,378
æ
元 朗 屏 山 Pin g S h a n , Yu e n L o n g 附件Annex 2

公所
Communal Hall

圖 例 Legend
未批租或撥用的 政府土地
Unleased or Unallocated Government Land (2012)
鄉村式發展
Village Type Development

航空照片 Orthophoto (Dec. 2015 Release)

米 SCALE 1:5 000 比例尺 米
meters 100 50 0 100 200 300 400 500 meters

只作識別用
FOR IDENTIFICATION PURPOSES ONLY
日期 Date : 13/12/2017
æ
元 朗 大 井 圍 Ta i Ts e n g W a i , Y u e n L o n g

圖 例 Legend
未批租 或撥用的政府土地
Unleased or Unallocated Government Land (2012)
鄉村式發展
Village Type Development
航空照片 Orthophoto (Dec. 2015 Release)
米 SCALE 1:5 000 比例尺 米
meters 100 50 0 100 200 300 400 500 meters

只作識別用
FOR IDENTIFICATION PURPOSES ONLY
日期 Date : 13/12/2017