Co-creating the Victoria Cove Area with Elevated Urban Renewal Dimensions

The world-renowned Victoria Harbour is a vital asset of Hong Kong. Its unique geographical setting and stunning coastal scenery were considered by some local organisations years ago as deserving of being listed as a Cultural Landscape in the UNESCO World Heritage, reflecting the harbour's significance to Hong Kong. The allure of Victoria Harbour and Hong Kong’s international appeal can be further enhanced through holistic planning that unlocks the development potential of the harbour and its surrounding lands.

The Urban Renewal Authority (URA) has proposed the construction of an iconic building in Kwun Tong Town Centre Development Areas 4 & 5 with an aim to establish with One Island East the Eastern Gateway to Victoria Harbour, which complements the island-wide Western Gateway formed by the International Finance Centre and International Commerce Centre.  By creating new landmarks on both the east and west coasts of the harbour, alongside the natural beauty of Victoria Harbour, we can further elevate its status as a world-class harbour and enhance Hong Kong’s global image.

The Government is also leveraging the natural resources of Victoria Harbour to promote the development of the harbourfront. Last month, the Development Bureau submitted preliminary development proposals for the areas around Hung Hom Station and the adjacent waterfront to the Legislative Council’s Development Affairs Committee. The proposals highlight the importance of fully capitalising on the unique advantages of the coastal land to transform these areas into new waterfront landmarks on both sides of Victoria Harbour.

Apart from Hung Hom Station and its nearby waterfront, the coastal space of To Kwa Wan to the east of Hung Hom is also full of development potential. These spaces could possibly evolve into a vibrant, world-class Victoria Cove Area if high-quality waterfronts are established along the coast and built environment is improved and revitalised inland.

To prove the feasibility of the idea of developing the Victoria Cove Area, the URA has launched the "To Kwa Wan Harbourfront Study" (TKWHS) which covers the inland areas, waterfront space and adjacent waters of To Kwa Wan. Adopting a macroscopic and holistic approach to planning through maximising the unique features and strategic location of the Victoria Harbour, TKWHS aims to effectively utilise harbour resources and unlock the full potential of Victoria Harbour beyond its traditional role as a navigation channel, ultimately developing the first Victoria Cove Area as part of the Eastern Gateway. 

Vibrant and Diverse Victoria Harbour's Waterfront

In 2004, the Government established the Harbour-front Enhancement Committee, which was reorganised into the Harbourfront Commission in 2010. Over the past two decades, these bodies have dedicated efforts to promoting the development of the harbourfront. Through collaborations with private organisations, developers, and non-profit groups, various initiatives have been introduced to enrich the vibrancy and appeal of Victoria Harbour, in particular on Hong Kong Island side. For example, the Hong Kong Observation Wheel has become a landmark in the New Central Harbourfront. Additionally, waterfront spaces at Belcher Bay, Wan Chai, Causeway Bay, and North Point have been transformed into Harbourfront Shared Spaces, each with unique themes and features. Pedestrian walkways, jogging paths, recreational areas, viewing platforms, fitness facilities, and fishing spots are provided in these spaces, offering a diverse range of experiences along Victoria Harbour. Later this year, the 12-kilometer-long waterfront promenade, connecting Kennedy Town in the west to Shau Kei Wan in the east, will be fully open to the public.

Compared to Hong Kong Island, harbourfront development on the Kowloon peninsula is less comprehensive. The Kowloon Waterfront Walk along the west side of Victoria Harbour stretches from the Tsim Sha Tsui Promenade, Avenue of Stars, and the Cultural Centre to Harbour City. The integrated walkway within the Kai Tak Development Area, which has been opened to the public in phases, will connect several recreational and scenic spots, including Sung Wong Toi Park, Kai Tak River, Kai Tak Sports Park, Urban Park, and the waterfront promenade along the old runway area upon completion.

However, To Kwa Wan waterfront that connects to the Kai Tak Development Area and Hung Hom and Tsim Sha Tsui districts has yet to be developed within comprehensive and cohesive planning frameworks. This lack of integration hampers the full realisation of harbourfront development in these areas.

To Kwa Wan has Potential to Develop into Victoria Cove Area

As early as the late 1980s, the government proposed the "South East Kowloon Development" in response to the construction of the new airport at Chek Lap Kok. This plan aimed to develop the area around the former Kai Tak Airport and its surrounding districts, including Kwun Tong, Kowloon Bay, To Kwa Wan, and Hung Hom. Following the relocation of the former Kai Tak Airport, land reclamation was planned in the adjacent waters to accommodate residential, commercial, and recreational uses.

By 2004, the Court of Final Appeal ruled on an appeal concerning the Wan Chai North Outline Zoning Plan, with the verdict that any land reclamation within Victoria Harbour must serve an "overriding public need." Following the verdict, the Government decided to abandon major reclamation projects in Kai Tak and To Kwa Wan.

This decision brings about new opportunities for land development around To Kwa Wan and its waterfront. Combined with urban renewal and space revitalisation efforts, these areas can be fully harnessed to realise their development potential while making effective use of harbour resources. This could facilitate the development of the Victoria Cove Area on the eastern side of Victoria Harbour.

In the following paragraphs, I will analyse the potential and opportunities for transforming To Kwa Wan’s waterfront into the Victoria Cove Area from three key aspects—geographical environment, regulatory requirements, and the connection between inland areas and the waterfront:

Utilising the Harbour Resources Between the Eastern and Western Gateways

In terms of geographical environment, To Kwa Wan is located within the core urban area. Recently, through collaborative efforts among the Government, the URA, and private developers in urban renewal, the built environment of To Kwa Wan has been significantly improved, with connectivity with surrounding areas enhanced. This makes it more convenient for residents to access both old and new communities.

The To Kwa Wan waterfront is roughly triangular, covering about 348 hectares—larger than other bays along Victoria Harbour. When including inland areas, the entire Victoria Cove Area spans approximately 798 hectares. By adopting a macroscopic and holistic planning approach that integrates the "Cove–Waterfront-Inland" concept, we can fully leverage and harmonise the advantages of harbour waters, shoreline, and inland development. This holistic strategy holds promising potential to create Hong Kong’s first integrated Victoria Cove Area, combining leisure, tourism, commerce, and residential functions. The "Cove–Waterfront-Inland" planning model has been successfully implemented abroad, with notable examples such as Darling Harbour in Sydney and Aker Brygge in Oslo, Norway.

In recent years, the Government has been committed to developing a more accessible and connected harbourfront. For example, an emergency vehicle and maintenance access road of the To Kwa Wan Sewage Treatment Works was transformed into the To Kwa Wan Promenade, which opened in the end of 2023. However, certain segments of the To Kwa Wan waterfront remain inaccessible to the public because they are designated for private residential or commercial use, resulting in the fragmentation of the promenade. These fragmented segments include the Fishtail Rock in Hoi Sham Park, the gas facilities facing Grand Waterfront—which involve private land—and the Green Island Cement Pier, hindering the development of a continuous, high-quality promenade similar to those on Hong Kong Island, and restricting connectivity to Hung Hom and the Kai Tak Development Area. To address these challenges, regulatory and legal measures must be reviewed and implemented.

Protection of the Harbour Ordinance Amended to Facilitate Waterfront Development

The Legislative Council recently passed the Protection of the Harbour (Amendment) Bill, with an aim to lift restrictions and streamline processes for waterfront development. After the amendment, harbour improvement works smaller than 0.8 hectares will be allowed in Victoria Harbour, such as the construction of piers, viewing platforms, and breakwaters. This approach represents a balanced relaxation of restrictions, safeguarding Victoria Harbour while promoting waterfront development for public enjoyment.

I believe that the passage of this Bill offers greater flexibility and opportunities for developing the waterfront along To Kwa Wan. It will facilitate better integration and more effective utilisation of harbour resources. The Development Bureau has previously indicated that, once the Bill was passed, a series of small-scale reclamation projects could be launched to enhance the harbourfront. These include revitalising the Kowloon City Ferry Terminal facilities and exploring opportunities to develop pedestrian walkways or add landing stages near the gas facilities facing Grand Waterfront and around Green Island Cement Pier. Such initiatives would improve waterfront accessibility in Hung Hom and To Kwa Wan, reconnecting fragmented segments and creating a continuous waterfront space. This would lay a strong foundation for the development of the Victoria Cove Area.

Strengthening the Connection Between Inland Areas and the Harbourfront Through Urban Renewal Projects

Strengthening the connection between inland areas and the harbourfront is essential for developing the cove area, as it can attract visitors, instill vitality in the waterfront, and integrate water-related elements into the urban landscape.

Since 2016, the URA has adopted a district-based approach, launching eight interconnected redevelopment projects in areas such as Bailey Street, Wing Kwong Street, and Ngan Hon Street. Through these projects, the URA demolished dilapidated buildings for redevelopment, and re-planned the land use within these sites—such as opening up back lanes, converting private alleys into pedestrian streets, and constructing footbridges to connect with MTR stations. By leveraging urban renewal to improve the built environment and enhance connectivity within neighbourhoods and with surrounding areas, these projects have collectively transformed into Hong Kong’s first "district-based new community."

Building on this foundation and guided by a "planning-led, district-based" strategy, the URA launched the Kai Tak Road / Sa Po Road Development Scheme (KC-015 Project) and the Nga Tsin Wai Road / Carpenter Road Development Scheme to make use of underutilised government land and outdated facilities, bringing greater planning benefits to the community. For example, in the KC-015 Project, a sunken plaza connected through a government-built pedestrian tunnel to a future underground shopping street inside Kai Tak Development Area will be constructed. This will connect Kowloon City’s old district—divided by Prince Edward Road East—with the Kai Tak Development Area, improving overall connectivity, pedestrian experience, and linking to the Kai Tak River.

The URA has also expanded its planning scope from inland spaces in old districts to include harbourfront areas. When the URA launched the Ming Lun Street / Ma Tau Kok Road and To Kwa Wan Road / Ma Tau Kok Road Development Schemes in 2022, it recognised that these projects are situated in strategic coastal locations. Through integrated planning and design, the reconstructed buildings are set back from the waterfront, creating a 20-meter-wide promenade that connects seamlessly with the nearby Kai Tak Development Area’s waterfront promenade and Kai Tak Sports Park. Additionally, by optimising the layout and design of the buildings within these projects, the URA aims to develop a diversified seaside plaza that is at least 25-meter wide between residential and commercial podiums. This design will enable residents to walk directly from To Kwa Wan Road to the harbourfront, thereby strengthening the connectivity and accessibility between Kowloon City’s historic districts and the harbourfront.

Beyond urban renewal initiatives by the URA, progress has also been made in developing the former Kai Tak Airport site, including the recent opening of Kai Tak Sports Park in March, injecting new vibrancy into To Kwa Wan. In terms of transportation infrastructure, the operation of the MTR Tuen Ma Line has enhanced travel convenience and increased foot traffic in the area. The Central Kowloon Route, currently under construction, is expected to be completed by the end of this year and will serve as the main artery across central Kowloon that connects east and west Kowloon. Meanwhile, To Kwa Wan Road will be upgraded from the current four lanes to six lanes, enhancing traffic connectivity with the Kai Tak new development area.

Despite these substantial improvements to roads and pedestrian networks, some parts of To Kwa Wan with harbourfront access remain underutilised or occupied by old community facilities—such as temporary parking lots and cultural or artistic sites. To further strengthen the inland-harbourfront connection, a holistic planning approach should be adopted for these lands, considering land use, roads, pedestrian pathways, and environmental revitalisation to unlock their full potential.

Elevating the Dimension of Urban Renewal

Over the years, the URA has been promoting urban renewal in Kowloon City and To Kwa Wan, which evolved from neighbourhood-focused projects to district-based planning that supports large-scale improvements to the urban environment. As new projects unfold and infrastructure development progresses, there are emerging opportunities for a higher and broader level of "old district" renewal. This goes beyond mere connectivity to encompass harbourfront development, recreational and sports facilities, and the integration of inland, harbourfront, and coastal areas to create a vibrant, accessible Victoria Cove Area.