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Enhanced Use of Underground Space in Hongkong

In October 2009, the Chief Executive presented the 2009-10 Policy Address entitled Breaking
New Ground Together. A new initiative was included under Chapter 1 of the Policy Agenda
Developing the Infrastructure for Economic Growth to launch strategic planning and technical
studies to facilitate planned development of underground space aiming at promoting the
enhanced use of rock caverns as part of Hong Kongs pursuit of sustainable development.
Ove Arup & Partners Hong Kong Ltd (Arup) were commissioned by the Geotechnical
Engineering Office (GEO) of the Civil Engineering and Development Department (CEDD) to
undertake the study on the Enhanced Use of Underground Space in Hong Kong under
Agreement No. CE 66/2009 (GE). Arup were supported by sub-consultants Norconsult AS and
Urbis Ltd and other specialist sub-consultants.
The objectives of this study are to review the history and current status of use of underground
space in Hong Kong, benchmarking Hong Kongs practice with that elsewhere, examining
opportunities for underground space development in Hong Kong, evaluating the viability of
zoning strategic cavern areas, identifying strategic planning and technical issues that need to be
addressed and based on these findings, recommend the approaches and the way forward for
planned development of underground space by promoting enhanced use of rock caverns in
Hong Kong so as to release land for other uses.
Whilst the emphasis of this study is particularly related to rock cavern development, the term
underground space is used to encompass not only purpose-built rock caverns but also large
basement-type excavations formed by cut and cover methods.
This Executive Summary outlines the major issues and findings under the assignment as well
as the recommended approaches and way forward for the enhanced use of underground space
in Hong Kong.

Study of Potential Use of Underground Space (SPUN)

Investigation of potentially viable uses for large man-made underground spaces in rock caverns
was an early Metroplan initiative, for the 1990s, being a new response to the continuing demand
for usable land supply. Concern about the growth of various environmental problems made this
option even more attractive. Many kilometres of tunnels had already been constructed in Hong
Kong for the use of road and rail traffic, and caverns had also been formed as part of the Mass
Transit Railway (MTR) system and for water supply. The technology involved in this process had
been well tested in Hong Kong, but had not yet been applied to the formation of underground
space on as large a scale, or for as wide a variety of uses as was already common elsewhere in
the world.
It was recognised widely for the first time during the Metroplan Study, that rock cavern
development could help to ease the demand for usable land, the supply of which is severely

limited in Hong Kong Island and Kowloon. In order to establish the opportunities that existed for
this new form of development, whilst taking the constraints unique to Hong Kong into account,
the Study of the Potential Use of Underground Space (SPUN) was initiated by GEO in 1988
under the aegis of the Metroplan Study focusing on four main issues:
1. The physical opportunities provided by Hong Kongs topography and geology.
2. The existence of suitable sites compatible with planning needs
3. A likely range of viable uses.
4. Environmental problems and opportunities.
The SPUN study confirmed that the development of underground space in Hong Kong was a
viable alternative to conventional above-ground development and one which could offer
significant environmental benefits.

Other Relevant Studies

Following SPUN, Cavern Project Studies (CAPRO) were initiated in 1990 including ground
investigations for two schemes. The studies included:

Refuse Transfer Station in Mount Davis, and

Government Warehouse in Chai Wan

In parallel with the SPUN and CAPRO studies, the Guide to Cavern Engineering, the Guide to
Fire Safety Design for Caverns and Hong Kong Planning Standards and Guidelines (HKPSG)
on rock cavern development were issued to provide designers and regulatory authorities with a
guide to good cavern engineering practice.
Several Preliminary Engineering Geology Studies (PEGS) were carried out by CEDD between
1990 and 1993 and more recently to assess the potential for relocating various existing and
planned facilities to rock caverns, including sewage treatment, fuel storage, abattoir & service
reservoir facilities.
Cavern Area Studies (CAS) were also carried out by CEDD between 1992 and 1998, to classify
the suitability of land for rock cavern development based primarily on general engineering
geological information.

Review of Major Rock Cavern Projects Worldwide

The advantages of the development of underground space are being recognised internationally.
This study has unveiled numerous both practical and innovative cavern developments that have
been successfully implemented across the globe. The most notable are introduced below:

Gjvik, Norway
In 1975, the first underground swimming pool to
international standards was completed in the
city centre of Gjvik, Norway. In 1993, this
underground facility was extended to become a
spectacular cavern for public use. The Gjvik
Mountain Hall was built to accommodate the
ice-hockey matches of the Lillehammer Winter
Olympic Games in 1994. It has the largest
known cavern span excavated worldwide and is
61 m wide, 91 m long and 25 m high. A wide
variety of activities and concerts are also held
making it an excellent, well used public facility,
which is capable of accommodating 5,500
people and is the largest underground arena in
the world to date. It is feasible that similar sized facilities could be considered for Hong Kong
where good rock mass conditions could be identified.

Singapore
The Underground Ammunition Facility
(UAF) was completed in 2008. This
reduced the land area required to be
sterilised from development due to the
smaller safety buffers around the
underground facility, releasing some 300
hectares of land.

Veas, Norway

With the increased needs for

sewage treatment and tighter
controls on the discharge
standards into the sea, large
sewage treatment plants have
been constructed in rock caverns
since the 1970s. The first
underground treatment plant in
Oslo was the VEAS Sewage
Treatment Plant commissioned in
1982. It handles residential,
commercial and industrial waste water for a population of approximately 565,000 people. The
plant initially had a capacity of 400,000 m3 and adopted a mechanical/chemical process, which
was later extended to include a fixed film biological removal system. An extension for six of its
eight caverns commenced in 1991 to improve the quality of the discharge.
Oset, Norway
Globally, water treatment facilities have also been developed within rock caverns. One of the
largest facilities for water treatment is the Oset Water Treatment complex in Oslo, Norway. The
original plant was constructed in 1971 and consisted of 5 parallel caverns. This was enlarged
and upgraded in 2008 and now produces over 391,000 m3 of potable water per day whilst
meeting EU standards. Oset is now Europes largest plant located within rock caverns and
serves about 90% of Oslos population.
Kansas City, USA
Underground quarrying of limestone for construction road-base materials and aggregates has
produced more than 2.3 million m2 of developed underground space. Since the 1960s, this has
been used extensively for warehousing, manufacturing, offices, retail and service operations.
Itkeskus, Finland
Itkeskus Swimming Complex opened in 1993 and is an underground two-storey facility. It
consists of a 50 m swimming pool, a learners pool, childrens pool, jacuzzi, waterslides, diving
towers, saunas and a gymnasium. The facility can handle 1,000 visitors at one time. When
circumstances require, it can be converted into an emergency shelter for 3,800 persons.

Rock Cavern Projects Successfully Implemented in

Hong Kong
Cavern development is by no means a new idea in Hong Kong. The following successfully
implemented projects highlight that the use of rock caverns is a viable option in Hong Kong.
Hong Kong University has recently relocated two Water Supplies Department (WSD) salt
water service reservoirs (12,000 m3 capacity) within rock caverns to accommodate the
development of their Centennial Campus. The two rock caverns are 50 m long, 17.6 m wide and
17 m high. This has set an unprecedented local example of constructing service reservoirs in

rock caverns. The cavern scheme preserved the three historic graded buildings nearby,
minimised tree felling and reduced the amount of construction waste generated.
The Stanley Sewage Treatment Works serves a population of 27,000 inhabitants. The design
capacity of the facility is 11,600 m3/day. The facility, designed with a process that minimised the
size of the sewage treatment facility, was completed in 1995. The underground facility
comprises access tunnels, a 130 m long service cavern of 15 m span and 17 m high, and two
treatment tunnels about 90 m long, 15 m span and 11 m high. These house aeration tanks,
sludge pumps and final settlement basins. The cavern scheme was chosen because no suitable
surface land was available.
The Kau Shat Wan Explosives Depot was completed in 1997 and has since been the
principal store of explosives in Hong Kong. Due to the large urban development planned on the
West Kowloon Reclamation close to the then explosives complex on Stonecutters Island, a new
explosive storage facility was planned. The selected site at Kau Shat Wan offered a remote,
secure site with limited accessibility by land. The Kau Shat Wan explosives magazine facility
comprises one loop access tunnel with 10 No. explosive chambers that are 21 m long, 6.8 m
high and 13 m wide running off the access tunnel.
The Island West Transfer Station involved the construction of awaste transfer facility in a rock
cavern in the Central and Western District of Hong Kong Island. It was successfully procured
through a build, operate and transfer contract with private sector involvement. The cavern
scheme was adopted based on the work undertaken in the SPUN & CAPRO Studies as there
were problems in identifying a suitable site for the refuse transfer station within the Central and
Western District. The cavern layout and arrangement include a 27 m span cavern that is 60 m
long and 12 m high. This is the largest span rock cavern constructed in Hong Kong to date.
The MTR West Island Line Explosives Magazine at Victoria Road was constructed to store
explosives for the construction activities relating to the West Island Line. The magazine is
designed in a horseshoe shape, with eight small niches, each to hold a small amount of
explosives. The excavation totals approximately 325 m in length and the niches are 4.2 m high
and 5.5 m wide, and 8.6 m long.
Others
It appears to be possible to expand the use of underground space into large-scale development
with minimal impact to the surrounding communities and general public. Indeed some of the
new MTR projects are building caverns and underground space in close proximity to densely
populated residential areas.
There are numerous examples of use of underground space in Hong Kong not only as caverns
but as deep basements in the city. Integration of some of these facilities into a connected
underground city can be achieved as demonstrated by the successful integration of Tsim Sha
Tsui and Tsim Sha Tsui East stations with connections to various shopping and retail complexes
further expanding the feeling of a connected underground city space.

Update of Potential Land Uses in Hong Kong

The review of cavern schemes overseas has identified that there are a variety of reasons for the
development of caverns and underground space such as land supply, economy, environment,
climate and security. Not only are the impact elements important to assess but also the political
and public perception in accepting and valuing this type of space.
There are a variety of uses that have been developed in rock caverns mostly around the NIMBY
(Not In My Back Yard) or Bad Neighbour type facilities. However, there are more land uses and
facility types that have been recognised internationally that could also be considered as being
relevant to Hong Kong. These land uses are listed in the table below:

Potensi Penggunaan Lahan untuk Pengembangan Rock Cavern

Jenis Penggunaan Lahan

Penggunaan Lahan Eksisting di

HKPSG*

Penggunaan Lahan Yang Dapat

Ditambahkan ke HKPSG

Komersial

Retail

Food / Wine storage

Warehousing

Industrial

Industry

Dangerous goods

LPG bulk storage

Oil bulk storage

Data centre
Research laboratories
Science park

Storage / Warehousing
Pemerintahan, Instansi, dan
Organisasi Komunitas

Civic centre

Archives

Columbarium / Mausoleum /
Mortuary
Incinerator
Indoor games / Sports hall
Refuse transfer facility
Sewage / Water treatment plant
Service reservoir
Slaughterhouse
Transport connections & networks

Bicycle park-and-ride
Car / Vehicle parking
Crematorium
Refuse collection point
Maintenance depot for rail and
others
Underground quarrying

Wholesale market
Fasilitas Umum

Power station

Substation

*Hong Kong Planning Standards and Guidelines

Review of the Financial and Economic Aspects of

Rock Cavern Schemes
The costs of the various rock cavern schemes previously presented within the SPUN and
CAPRO studies have been reviewed and updated. The costs, excluding the land costs overall,
for the cavern options have generally increased by a larger proportion than the above-ground
facility costs. This is primarily because permanent linings have been included in all assumptions
to meet improved operational requirements. Shotcrete and dowel rock mass support could be
used in less critical areas to reduce costs.
For the cavern option, project benefits could be derived from the potential release of the surface
land. The approach for this study is to allocate land as a cost rather than revenue. For example,
the above-ground option includes costs for land, capital and operation, while the underground
option does not incur costs for land. The comparison would then be on a least cost basis and
land would be an avoided cost, or saving.
There is significant variation in cavern construction costs with current contract estimates
suggesting an upper cost range of HK$1,500 to 2,000 per m3 for the excavation and temporary
support. With a final concrete lining installed the total cost of the construction is likely to range
from around HK$2,500 to 3,500 per m3. It should also be noted that these costs are for
excavation and support only and do not include all the necessary associated preliminaries.

The review has identified that underground facilities are generally more costly to run than the
above-ground facilities. However, when non-monetary benefits and land costs are taken into
account, the rock cavern schemes become more attractive.
Reasons why some of the schemes studied under SPUN/CAPRO were not implemented could
be broadly categorised under four main headings as follows:
Economic / Financial
Feasibility stage does not include an accurate comparison of above-ground and
underground options, particularly the land cost savings that are captured by rock cavern
development options. The savings in land and the ability to use it for some other use that
benefits the community needs to be included in future analysis.
Potential cavern option will always appear more costly if land costs are not included due to
possibly higher operational requirements (ventilation, lighting, safety, etc).
Project-based benefits may not adequately reflect overall benefits to the community.
As discussed above, the development of caverns relative to an above-ground location needs to
include land costs.
Policy and Strategy Issues
Lack of policy steer for cavern development.
Cavern option may be examined too late in the works projects implementation process.
Lack of planning of underground usage.
Lack of incentives for government departments and private developers.
Fire safety and ventilation requirements / approach thought to be too onerous.
Operation and Maintenance Issues
Initial capital costs considered to be higher than above-ground development.
Life cycle costs and operation / maintenance costs considered to be higher than aboveground facilities.
Limited experience of government departments to work in, and maintain underground
space.
Perceptions
Availability of suitable above-ground land to build surface options.
No driver to consider cavern options for existing facilities due to limited need for expansion.
Low value placed on public benefit schemes.
Other benefits such as public relations and government image could also be an important
consideration for underground schemes. Success factors that do not necessarily relate to cost
and financial aspects of the project should also be considered to ensure that an appropriate
balance is considered for public benefit.
Current Cavern Costs
In the SPUN studies the previous Norwegian practice of shotcrete and rock dowel support was
adopted. The current MTR approach in Hong Kong is to build tunnel and cavern linings that
meet a higher threshold level of performance with regard to water tightness. If future schemes
consider providing tunnel linings that are comparable to the MTR approach, then the costs of
construction will be greater.

The adjacent graph outlines the typical costs per linear metre that could be considered for
different range of tunnel and cavern cross sections. These costs are for typical tunnel support
and a range of typical rock mass conditions found in Hong Kong. It should be noted that the
excavation of these caverns is assumed to be within an urban environment. It should also be
noted that these costs are for excavation and support only and do not include all the necessary
associated preliminaries.

Review of Underground Planning, Usage

Strategy and Practice in Other Countries
In order to implement an underground planning strategy, there needs to be specific
consideration of the local requirements and demands of each country, region or city. The
underground planning and usage strategy and underground development practices are strongly
linked. Where the framework to build, operate and maintain underground space has not been
developed there is potential for the above-ground based legislative and regulatory framework to
hinder the development of underground space.
Legislative and administrative issues concerning cavern development often include the limits of
surface property ownership, the right to develop underground space, application of surface land
use regulations to underground space, environmental controls, major permits required and
potential development restrictions due to surface and underground structures. The general
underground development of selected countries in relation to their underground planning and
usage strategy is summarised below.
Finland
In 2009, the Helsinki Underground Master Plan was introduced with an objective to ensure the
utilisation of the bedrock resources is retained for the construction of public long-term projects
and underground spaces are well-connected with important traffic infrastructure and significant
commercial projects. The master plan illustrates more than 400 current underground spaces
and reserves over 200 underground spaces for future uses. The locations, space allocation,
importance, connection and mutual compatibilities of underground spaces are taken into
account.
The Helsinki Underground Master Plan is a legally binding plan for land owners and authorities.
Today, over 400 premises are located in underground locations in Helsinki, totalling a volume of
approximately 9,500,000 m3.
The comprehensive underground master plan has had a significant influence on underground
space development. Many of the dual-purpose cavern facilities are partly funded by the National
Civil Defence Department that provides another incentive for facilities to be developed as dualuse facilities.
Norway
Norway has effectively and strategically placed the majority of their NIMBY type facilities below
ground and has valued the land that has been released for other uses. The concept has great
public acceptance and there has been commitment from all government and district levels in

implementing this strategy. Despite the lack of a central or specific legal and administrative
framework for planning and regulation of underground space, Norway has a long history of
developing a large number and variety of underground facilities.
Accommodating previous restrictions on underground development, in that surface buildings in
urban areas were only allowed to extend to shallow depth may have inadvertently freed up the
rest of the deeper underground space for other uses. Construction of underground development
beneath private lots is also allowed subject to appropriation and compensation to the surface
land owner.
A major driver in the development of caverns appears to have been the policy to develop and
provide civil defence shelters for the majority of the population. This combined with financial
assistance to provide for the construction of civil defence shelters has also promoted the
construction of dual-purpose rock caverns for public use.

Singapore
Singapore has a land area of 650 km2 and land reclamation has been carried out extensively in
the past. In the 1990s, Singapore began their journey of exploring the opportunities of
developing underground space. With a growing population reaching nearly 5 million, land
availability is a key issue. Land owners in Singapore also own the underground space of the
land that they own subject to the specific area being defined on a government plan or gazetted.
In 2010, the Economic Strategies Committee reported that in the next 10 years, the government
should seek to catalyse the development of underground space as a means to intensify land
use. Singapore should put in place enablers for underground development such as by
developing a subterranean land rights and valuation framework, and develop an underground
master plan to ensure that underground and above-ground spaces are synergised, and invest in
the creation of basement spaces in conjunction with new underground infrastructure projects
(e.g. rail), so as to add to the land bank. There is likely to be a greater push in underground
space development in Singapore in the near future to aid economic growth.
Other Countries
Key items noted regarding underground planning and usage in other countries around the world
are:
In Canada , the Underground City of Montreal is known as one of the largest and oldest
underground pedestrian networks in the world. This case demonstrates that rather than the
development of a master plan to guide the growth of underground development, the use of
appropriate incentive tools can also encourage successful underground development within the
private sector.
In China, it has been reported that more than 20 cities including Beijing, Shanghai, Shenzhen
and Hangzhou have or are compiling plans for their urban underground space. These plans
show the size, layout, function, development depth and timing of the underground space, and
have defined the guiding theory for urban underground space development of key development
areas.
The United Kingdom has a long and varied use of underground space, the development of
which appears to have occurred according to local needs and on an ad-hoc basis.

 Japan has a long history of developing underground pedestrian and retail space that has been
mostly promoted by government incentives. Oil storage, hydropower and other land uses have
also been placed underground.
South Korea has developed an extensive network of oil and fuel storage facilities for strategic
and security reasons.
The Netherlands has two cities (Arnhem and Zwolle) that have prepared non-binding zoning
plans that divide the subsurface into three layers that target the types of uses that those layers
would be subject to. The surface layer accommodates buildings and near surface development.
The next lower layer targets underground transportation systems and the bottom layer targets
groundwater resources.

Underground Planning, Usage Strategy and

Practice in Hong Kong
While the use of underground space is quite common in Hong Kong in relation to the MTR and
associated underground retail complexes, Hong Kong currently only has five purpose-built
cavern developments.
In Hong Kong the drivers for cavern development are high land values and limited surface land
for development. The hilly, steep terrain and strong granitic and volcanic rocks of Hong Kong
provide excellent conditions to develop underground space.
Advantages and opportunities for underground development in Hong Kong include:
Lack of Available Land
Key sites that are occupied by government uses can be considered for reprovisioning in rock
caverns to free up land in densely populated areas. Prime land areas that have become
vertically constrained are likely to adopt underground options in the future, particularly if
incentives are available to the private sector.
Urban Redevelopment
As existing older urban areas deteriorate and new infrastructure or redevelopment is required,
underground development provides a method whereby essential services can be constructed
concurrently beneath new facilities with minimum disruption to the surface and public.
Environmental Impact
Underground developments can reduce the impacts on urban sprawl and provide for the
requirements of economic growth whilst preserving the natural environment.
Bad Neighbour Uses

Locating above-ground undesirable or bad neighbour uses, e.g. refuse transfer stations and
sewage treatment works, can be a contentious aspect within an existing community. Adoption of
underground facilities for this type of land use could reduce the impacts on the environment and
communities living nearby.
Low Visual Impact
A major benefit of cavern developments is their relatively low visual impact as only shafts and
portals are visible at the surface.
Security
Experts regard the use of rock caverns for data centres and storage of some dangerous goods
such as natural gas and fuels as improving and increasing the security of storage as it reduces
the risk of accidental impact, blast and acts of terrorism.
Innovative Usage
Other innovative design schemes, e.g. development of multi-facility caverns and integration of
cavern formation and underground quarrying or underground infrastructure development could
be explored.
Energy Efficiency
The insulating mass of the surrounding earth usually means that underground caverns typically
use 5080 percent less energy for heating and cooling than a surface building. From the
perspective of uniform temperature control, exploiting underground caverns in Hong Kong could
be beneficial.
Economics
The construction cost of underground caverns can sometimes be cheaper than that of an
above-ground alternative if the land value is taken into account.
Future Expansion
Provision must be made to allow future expansion of facilities by reserving nearby space.
To further maximise the use of underground space, it would be prudent for Hong Kong to take
the following planning steps:
Identify and Plan for Future Underground Usage
1. A clear policy steer is needed. To address the lack of incentive to actively seek cavern
development as a potential development option, it is proposed that Technical Circulars could be
issued by relevant bureau to mandate the consideration of cavern options in the early project
planning stage for all appropriate government projects.
2. In new land parcels, identify those that can adopt caverns to ensure that no beneficial
opportunities for cavern development are missed in the public sector.

3. Identify existing land parcels that could be used for underground space development. A
system to reserve them for suitable land uses without being compromised by future
development project is required.
4. Shortlisting of government facilities of land uses with potential to be placed in caverns that
are currently located on valuable surface land parcels, for re-provisioning underground.
5. To formulate a programme and implement the reprovisioning of the shortlisted government
facilities with potential to be placed underground.
6. Explore innovative design schemes such as archives, data centres and underground
quarrying.
7. Incorporate the planning strategy for underground space development into relevant future
territorial/ regional development strategies, where appropriate.
8. To build up an underground land reserve based on the identified strategic cavern areas and
sites.
9. Explore improved connectivity of existing underground space areas in Hong Kong with MTR
stations and other transport hubs.

Benchmarking the Extent and Rationale for Underground Uses

Extent of Underground
Use

Underground Planning
strategy

Main Reasons for

Underground Use

Finland

Extensive

Yes

Security, Economy,
Environment & Climate
(also Land Supply in
Helsinki)

Norway

Extensive

No

Security, Economy,

Minimal

No

Land Supply & Security

South Korea

Moderate

No

Economy & Security

UK

Moderate

No

Ad Hoc

Minimal

No

Land Supply &

Environment

Environment & Climate

Singapore

Hong Kong

Legislative and Administrative Issues

There are a number of planning and legislative aspects that place restrictions on the ability for
Hong Kong to be flexible with its underground development locations and planning.
Firstly, in Hong Kong the land ownership on the surface extends underground as well. As the
current development model for many of Hong Kongs projects is a mixed-use development, the
ownership of the land is often amongst multiple parties. From an administrative viewpoint, it
would be difficult to organise all of the owners to consent to trigger the underground
development beneath these land plots.
Secondly, Hong Kongs current land practice only allows underground development below other
parties land (without ownership) in the case of public need, such as the development of the
MTR system. Therefore the surface land would need to be owned by the same party that
wanted to develop underground.

Thirdly, the statutory planning currently dictates that land use on the surface also governs the
land uses underground, which could potentially be restrictive to the development of differing
uses. However, the current statutory planning system has the flexibility to accommodate
underground development.
To facilitate optimal underground development, a revised regulatory framework would be
required. Components of these amendments would include:

The ability to create joint ownership between surface and underground developments.
This however, would require detailed feasibility study and would only be an option in case of
newly disposed land.

Legislative amendments required for the interfacing between joint landowners.

With regard to the proposed revisions to the statutory and legislative framework, there is the
potential to introduce an overarching Cavern Ordinance to assist this aspect. This would:
Consolidate all of the various development stakeholder aspects under one Ordinance.
Specify the rights and obligations of all parties with respect to the underground developments.
Make provision for the private sector involvement much easier in underground developments.

http://www.undergroundspace.gov.hk

Territory-wide Study on Underground Space Development in the

Urban Areas of Hong Kong
Land is a scarce resource in Hong Kong. Underground space is a viable source of land supply.
In late 2013, the Civil Engineering and Development Department commenced a territory-wide
study to explore the potential for developing underground space in the urban centres and new
towns, with a view to creating urban space, enhancing urban connectivity and improving
congested urban environment.
The study was highlighted in the 2013 and 2014 Policy Addresses.
Benefits
Hong Kong has a long history of underground space development. These are primarily projectspecific schemes, e.g. basement car parks and shopping centres, road and railway tunnels, and
utility networks. There are also a few examples that go beyond individual sites.
Enhancing the use of underground space can offer excellent opportunities for the following
planning and development gains:
Creating Urban Space
For commercial, cultural, recreational and other beneficial uses, or relocation of facilities of
incompatible land use (e.g. refuse collection points).
Enhancing Urban Connectivity
Underground pedestrian links can help relieve crowd and traffic congestion. The links may be
developed with retail and food & beverage outlets to enhance their vibrancy.
Improving the Congested Urban Environment
Creating additional open space and reorganising infrastructure to yield a synergy effect with
surface development and meet the needs of the community.
Study Scope
The study will identify opportunities for and constraints to underground space development in
the urban centres and new towns in a systematic manner, select potential areas for appraisal
and development of feasible conceptual schemes, and recommend the way forward for
implementation of prospective projects.
The study, commenced in late 2013, will take about 2 years to complete.

In addition to the above territory-wide study, Civil Engineering and Development Department
also plans to launch a Pilot Study on selected strategic urban areas in 2015. This study aims to
examine the feasibility of developing underground space in four strategic urban areas
(Admiralty/Wan Chai, Causeway Bay, Happy Valley and Tsim Sha Tsui West) in more detail.
Therefore, these four strategic urban areas will not be covered under the territory-wide study.
Hong Kong Examples of Underground Space Development
Pedestrian Subway System between Tsim Sha Tsui and East Tsim Sha Tsui MTR
Stations
- Opened in 2004
- Provides a convenient,
comfortable and
weatherproof underground
pedestrian network totalling
about 1.45 km
- 26 MTR exits connected to
major locations within Tsim
Sha Tsui, including
basement of hotels and retail
complexes nearby

Underground Car Park at Harcourt Garden

-

Built in mid-1990s
A 3-basement level car park containing 500 parking spaces
Two sections of the car park linked on the 2nd basement level
One vehicle entrance at Harcourt Road and the other one at Rodney Street
One of the pedestrian exits connected to the Admiralty MTR Station
Effectively hidden underneath a well-vegetated garden at ground level

Passage & Retail at East Point Road, Causeway Bay

- Built in 1997
- A retail space of 571 m2 floor area
formed underneath a public road
- Also served as an alternative link
between the basement level of East
Point Centre and Island Centre

MTR Stations
- 2 MTR stations constructed in rock caverns in 1985 - Tai Koo Station and Sai Wan Ho
Station
- Tai Koo Station is 25m wide and 16m high
- Sai Wan Ho Station is 16m wide and 13m high
- 5 more MTR stations in rock caverns
- Sai Ying Pun Station (2014)
- University Station (2014)
- Lei Tung Station (2015)
- Ho Man Tin Station (2015)
- Admiralty Station Extension (2020)
Stanley Sewage Treatment Works
- Commissioned in 1995
- Consists of 3 rock caverns approximately 120m long, 15m wide and 17m high each
- Serves a population of over 27,000 in Stanley, Ma Hang, Tai Tam, Chung Hom Kok and
Red Hill areas
- Facilities effectively hidden in caverns
- Integrates with the surrounding environment and community
Island West Transfer Station
- Built in 1997
- Provide waste transfer service for the Central and Western District and part of the
Southern District
- The tipping hall is housed within a rock cavern measuring about 65m long, 12m high and
27m wide
- Treatment capacity of 1,000 tonnes of refuse per day
- Less than 200m from the nearest residential building
- Facilities effectively hidden underground

- Minimal environmental and visual impact

Kau Shat Wan Government Explosives Depot
-

Built in 1997
For storage of commercial explosives
Comprising 10 rock cavern chambers, each measuring 21m long, 13m wide and 7m high
Offered a safe and secure environment for the storage
Reduced visual impact by housing the storage inside the hilly terrain, while preserving
the natural green landscape

Western Salt Water Service Reservoirs

-

Built in 2009
Maximum storage of 12,000m3 salt water
Released surface land for construction of HKU Centennial Campus
Avoided massive excavation and thus minimized visual and environmental impacts
Voted as one of The Hong Kong People Engineering Wonders in the 21st Century
organized by The Hong Kong Institution of Engineers in 2013

Bostons Big Dig Project

- Bostons Big Dig project re-routed a major elevated road underground
- Reconnected both sides of the city and created a green corridor of 2.4km long above
ground for public enjoyment
- Significantly improved the city landscape and urban environment
Montreal Underground City
- Montreal Underground City is an exemplar, lively demonstrating how underground space
can be a valuable resource for sustainable city development
- Consists of an indoor pedestrian network of 32 km long, with total area coverage of
about 200 ha
- Connected to 10 metro stations, 2 railway stations and more than 62 buildings
- Developed since 1962 and continue to expand
- Serves over 500,000 pedestrians every day, providing a climate-controlled environment
throughout the four seasons
Mainland China
- There are many underground development projects in major cities of Mainland China
such as Beijing, Shanghai, Guangzhou and Shenzhen

- Opened in 2011, Mall of the World at Zhujiang New Town, Guangzhou, is a good
example to show how to develop usable underground space while maintaining a
spacious green area above ground
- Contains about 400 retail outlets, a 3D cinema and over 3,000 parking spaces
- Connected to 1 metro station and 4 Automated People Mover (APM) stations
Japan
- Japan is renowned for its well-established underground shopping street systems,
offering excellent commercial opportunities while yielding convenient accessibility
- Two notable examples are Yaesu Chikagai in Tokyo and Umeda Underground Shopping
Street in Osaka, both well connected to metro and railway lines
- Other innovative examples include underground bicycle parking and car parking systems
in Tokyo
Singapore
- Singapore has been actively exploiting underground space to create a synergy effect
with surface development
- Common Services Tunnel in Marina Bay is one of the successful applications
- The tunnel network houses various utilities in a coordinated manner, including power
cables, telecom cables, water pipes and district cooling pipes
- Easy for maintenance, repair and upgrade
- Fast laying of new services
- Minimise disturbance to road and pedestrian users
France
- Paris, France is actively enhancing the use of underground space in the pursuit of
sustainable urban development
- Notable examples are Les Halles and La Dfense - both are integrated developments of
underground rail station and shopping centre, with multi-level design for separated
pedestrian and vehicular flow
- Les Halles :
An underground transport hub of rail and metro lines, with well-connected subsurface
road and pedestrian networks linking to the neighbourhood
On average 750 000 passengers per day, including 150 000 people visiting the
shopping centre every day
The station is being redeveloped and upgraded to cater for increasing volume of foot
traffic and improve the community environment
- La Dfense :
A core business district with pedestrian volume reaching 180,000 on working days
Vehicular flow maintained at the lower floor, while creating a spacious pedestrian
precinct at the podium level

Offer a large open area for organising cultural and recreational events, exhibitions,
etc.
Korea
- Examples of large scale urban underground space development are also found in Seoul,
including Ewha Campus Complex at Ewha Womans Univerisity, Nana Square at Korea
University and The Buk Seoul Museum of Art
- Provided a new dimension in urban design by exploring space from a 3-D perspective in
a flexible manner
- Created spacious city landscape and pleasant surface environment by reorganising the
setting of above-ground and below-ground facilities
- Contemporary design with the exploitation of natural lighting and ventilation, making
underground space feel comfortable and delightful
Finlandia Hall Car Park Caverns, Finland
- Provides 650 parking lots in 150,000m3 caverns
- Original parking spaces at ground level were developed into a city park for municipal and
cultural facilities
- Adopted a modern architectural design
- Pedestrian walkways provided in the caverns connecting to nearby facilities
Itkeskus Swimming Hall, Finland
- Comprises a 50m swimming pool, a learners pool, a childrens pool, a Jacuzzi,
waterslides, diving towers, saunas and a gymnasium
- Receives 400,000 visitors per year
- Can accommodate 1,000 visitors at any one time
Gjvik Olympic Mountain Hall, Norway
-

Built in 1993
The worlds largest span rock cavern : 61m wide, 25m high and 91m long
Hosted ice hockey matches of the Lillehammer Winter Olympic Games in 1994
A well-used facility for concerts, exhibitions and other activities
Capacity of 5,500 people

National Archives, Norway

-

The cavern facility started to operate in 1978

4-storey storage building erected inside rock caverns
Provided a consistent humidity and steady temperature control
Allowed flexibility for phased expansion to meet the growing storage demand

 Pionen Data Centre, Sweden

- Constructed by expanding existing nuclear bunkers in rock caverns built in the 1970s
- Simulated daylight and greenhouse, and a 2,600 litre salt water fish tank, to provide a
comfortable working environment
- Unique for its architecture and interior design
- For details, please visit bahnhof.net
Wine Storage, France
- Wine is traditionally stored in special venues for sheltering from UV, consistent humidity
and steady temperature
- Wine caves with special architectural design creates an atmosphere for both enjoyment
and commercial promotion of wine
Food Storage, France
- Steady temperature in rock caverns provides an excellent environment for food storage.
- Ripening chambers for cheese intensify its flavour.
Underground Research Laboratory of CERN (European Organization for Nuclear
Research), Switzerland
- Houses the Large Hadron Collider for particle physics experiments to learn about the
basic forces that have shaped our Universe since the beginning of time
- The detector hall is housed in a rock cavern at a depth of 92m, with dimensions 53m
(long) x 35m (high) x 30m (wide)
- Experiment carried out at CERN confirmed the theory related to the God Particle
proposed by several physicists, two of whom were then awarded with the Nobel Prize in
Physics 2013
Brnig Park, Switzerland
- Established since 1990
- A private cavern facility for a variety of uses, including a 2-storey indoor shooting centre,
tunnels for fire fighting training and testing activities, workshop and restaurant
- Housing shooting galleries in caverns can minimise impacts on the scenic environment
- For details, please visit www.bruenigpark.ch
Hagerbach Test Gallery, Switzerland
- Established since 1970

- A multi-purpose private facility in caverns with about 6 km network of underground

space, contains material testing laboratory, concrete batching plant, firearm testing
centre, full-scale mock-up testing ground (e.g. blasting, rock support, lining, etc.), fire
fighting training facility, conference/lecture room, exhibition room and restaurant
- Successfully illustrated the versatility of rock caverns
- Tailor-made caverns can be formed to suit specific uses upon clients requests clearly
demonstrated flexibility of layout and expansion in underground environment
- Caverns constructed underneath a geopark and integrated well with the surrounding
environment
- For details, please visit hagerbach.ch/en
Schollberg Underground Quarry, Switzerland
-

Quarrying commenced in 1985

A privately operated quarry in a scenic mountainous area
Allows year-round operation, even under adverse weather conditions
Preserves existing landscape, effectively minimised environmental and visual impacts
Underground space created can be utilised for other beneficial uses

Alux Restaurant, Mexico

- A themed restaurant located in rock caves in Mexico
- Specially decorated to provide a unique dining experience
- For details, please visit aluxrestaurant.com
Springfield Underground, Missouri, USA
- Located at about 30 m below ground
- Total cavern space of about 240,000 square metres
- Accommodates various kinds of facilities, including warehousing, logistics,
manufacturing and cold storage
- Rail-served and accessible by tractor-trailers
- For details, please visit www.springfieldunderground.com

CHAPTER 11 OF HONG KONG PLANNING STANDARDS AND GUIDELINES (HKPSG)

Chapter 11

Miscellaneous Planning Standards and Guidelines

1. Introduction
1.1 The purpose of this chapter is to provide planning standards and guidelines for those
land uses or facilities which do not fall within the purview of other chapters. These
facilities and land uses are not at present related to each other. However, some of them
may be expanded or combined in future to form new chapters of their own. As such, this
chapter may be expanded or curtailed to suit new requirements.
2. Underground Rock Cavern Development
2.1 Rock Cavern Development Opportunities
2.1.1 Underground rock cavern developments refer to developments inside large manmade underground spaces in rock. Hong Kong's geological conditions offer
excellent opportunities for this type of development. The igneous rocks which
underlie much of the metropolitan area and the New Territories are excellent
excavation media below the weathered mantle and are ideal for forming manmade caverns. Caverns are designed on the principle of utilizing the strength of
the rock mass to form the roof arch and sidewalls. Detailed guidance on site
investigation, design and construction of caverns would be given in Geoguide 4 Guide to Cavern Engineering.
2.1.2 Although most cavern developments incur higher capital costs than similar
developments above-ground, the use of cavern space in highly developed and
overcrowded areas of Hong Kong can be an economic proposition under certain
circumstances. Examples of such cases are given in the detailed reports of the
Study of the Potential Use of Underground Space (SPUN).
2.1.3 Underground cavern developments can also be an attractive alternative
development form, in terms of potentially significant environmental benefits.
These benefits include the potential to mitigate adverse environmental impacts
associated with conventional surface developments of certain polluting uses and
the provision of a very stable environment, which can achieve savings in running
costs.
2.2 Possible Uses in Rock Caverns
2.2.1 Table I shows the possible uses of rock caverns suggested by the SPUN study
consultants and recommended by the inter-departmental Working Group on
Underground Rock Cavern Developments. The table is not exhaustive and
should be used for general guidance only. Each application has to be considered
on its own merits.
2.2.2 It must be recognised that changes in technology may help prevent or alleviate
problems associated with the intended underground development. The suitability

of each case should therefore be assessed on the basis of a pre-feasibility study

and planning study described below.

Table 1 : Possible Uses for Rock Cavern Development

Land Use
1

Residential (Incl. residential institution)

Commercial

Possible1

Office

Retail

Entertainment

Hotel
Ancillary Parking
3

X
Y

Commercial / Residential
Commercial elements

Residential elements
4

Industrial
Industry

Storage/Warehousing

Oil bulk storage

LPG bulk storage

Education

Vehicle Parking

Open Space

Government/Institution/Community

X
Y
X

Abattoir

Civic centre/Community centre

Hospital/Polyclinic/Clinic

Incinerator

Indoor games/Sports hall

Market (wholesale and retails)

Refuse transfer facilities

Sewage/Water treatment

Service reservoir

Transport connections & networks

Cemetery/Crematorium
Columbarium/Mausoleum/Mortuary
9

Unsuitable2

X
Y

Utilities
Power stations/Electricity sub-stations

SPUN's and Working Group's recommendations

1

Uses under this column are subject to pre-feasibility studies and planning studies to establish their suitability
for development on a case by case basis.

Uses under this column are usually considered unsuitable for underground rock cavern development.

2.3 Planning Process for Rock Cavern Development

2.3.1 The planning process for handling rock cavern development is illustrated in the
flow chart at Figure 1. It indicates the role of the Planning Department (Plan D),
the Geotechnical Engineering Office (GEO) of the Civil Engineering Department
(CED), the Buildings and Lands Department (BLD) and other relevant
departments/agencies in the planning and development of underground rock
caverns.
Site identification
2.3.2 Possible underground rock cavern sites should be identified as solution spaces
mainly in the formulation of the sub-regional planning strategies. Other special
strategic studies may also identify suitable cavern sites to meet their objectives
or requirements. Site identification is through systematic geological mapping by
the GEO or other study agents, who should work closely with the Plan D to
establish the need for cavern development and the intended uses.
Pre feasibility and Planning Studies
2.3.3 The purpose of conducting pre-feasibility and planning studies is to provide basic
technical and planning information about the sites and an estimate of capital
costs of development. The pre-feasibility studies will be can-led out by the GEO
and the planning studies co-ordinated by the Plan D. Such studies will safeguard
against wastage of manpower and resources at the project planning stage and
should normally be conducted before projects are proposed for inclusion in Cat.
C of the Public Works Programme.
2.3.4 Pre-feasibility studies are the initial appraisal of the geotechnical and engineering
aspects of the cavern site for the proposed use. The study should produce
preliminary design of cavern accommodation and an estimation of rock
excavation and support costs.
2.3.5 The purpose of planning studies is to assess the viability and development
parameters for the scheme which include:(a) Use
The study should provide justifications for the intended use. Any potential
conflicts between the schemes and their immediate environment should be
properly addressed in the planning study.
(b) Environment
For projects which are likely to cause a significant impact on the
environment (see pan. 1.7, tables 1.1 & 1.2 of Chapter 9 for reference), the
Environmental Protection Department should be consulted. The necessary
procedures to be followed are discussed in Chapter 9 of the Hong Kong
Planning Standards and Guidelines and summarized in a L&WB Technical
Circular No. 9/88 "Environmental Review of Major Developments" for public
works projects and in the Environmental Protection Department Advice Note

no. 2/90 "Application of the Environmental Impact Assessment Process to

Major Private Sector Projects" for private cavern development. The
necessary preventive measures to mitigate the adverse environmental
effects of the projects should be identified. In some cases quantitative
environmental assessment may be required to determine the magnitude and
severity of potential impacts, prior to any in-principle decision on the project.
(c) Safety
The safety aspect of the cavern site should be adequately assessed in the
initial planning stage. The study should take into account the overall size of a
cavern which would have a direct effect on the ease of evacuation and on
the safe use of the development.
(d) Traffic
A traffic impact study should be conducted to address the effect of the
intended development at both construction and operation stages. Interfaces
and connections with the existing and planned roads, railway and other
forms of transportation system should be examined.
(e) Financial
For government projects, the user department, in consultation with relevant
departments, will be required to submit a cost/benefit analysis of the scheme
taking into consideration the additional costs, if any, of development
underground and the potential financial and other benefits including the
release of space above-ground for other uses. For private projects, a
statement giving the development costs and appraisal on the financial
viability will be required as part of the submission for planning approval.
Planning Procedure
2.3.6 Once the viability of a cavern development has been ascertained, site
reservation can be made on the relevant Outline Development Plans/Layout
Plans and Outline Zoning Plans in accordance with the normal planning
procedures. Suitable zonings should be annotated on these plans to indicate the
above-ground and underground development intentions as there may be different
developments occupying the same site. At this stage, only the approximate
boundaries of the underground rock cavern sites can be annotated.
Project Planning
2.3.7 Project planning for public sector works usually starts when the proposed
development has been upgraded to Cat. B of the Public Works Programme. At
this stage, detailed geotechnical investigation is required. For government
projects, the user department or its works agent will proceed with detailed studies
in accordance with the planning requirements previously identified and the
project requirements. Detailed guidance on investigation and design of cavern
developments would be given in Geoguide 4 - Guide to Cavern Engineering and

the Code of Practice on Fire Engineering for Caverns. Both documents are under
preparation. Relevant issues to be considered include :(a) Fire, Hazard and Public Safety Issues
Fire/hazard prevention, means of escape and other public safety issues are
of crucial importance to the design of cavern developments. The Director of
Fire Services and the Principal Government Building Surveyor should be
consulted on their requirements.
(b) Radon Emission and Gas Incidence
It is standard practice in the design of all underground space to provide
adequate ventilation in order to avoid the accumulation of gas. The Director
of Environmental Protection, the Director of Fire Services, the Commissioner
for Labour and the Director of Health should be consulted on their
requirements.
(c) Blasting Noise, Vibration and Subsidence
Some cavern schemes may require blasting in close proximity to building
structures and transport lines. When such operations are likely to be
involved, advice on the stability of adjoining structures and requirements for
preventive measures where necessary should be sought from the Mines
Divison of GEO and relevant authorities/ departments.
(d) Drainage, Servicing and Other Utility Provisions
Consultation with the Director of Drainage Services, the Director of Water
Supplies and other utility companies should be made on their requirements
on the provision of utility facilities to the cavern development.
For private projects, a planning brief will be prepared by the Plan D to list the
development parameters and the above technical requirements. The planning
brief will be used as the basis for drawing up the lease conditions.
Land Disposal
2.3.8 The disposal of land for underground cavern development will follow current
procedures either as a land allocation for public projects or a land sale/grant for
private projects Land sold/granted for private cavern projects would be counted
towards the annual land sale quota.
2.3.9 Due to the complexity of space which cavern developments usually incur, there
are practical difficulties in defining plot ratio and site coverage. The development
content and relevant control on the cubic content of the development should
ideally be specified in the form of a three dimensional development 'envelope' on
the lease/engineering conditions. This 'envelope' should be developed in
consultation with the GEO and should define an inner space within which cavern
construction is permitted, and an outer surrounding space (for maintenance of
cavern support) within which excavations or other works should not be permitted

apart from access tunnels, drainage adits, and ventilation shafts. Relevant
departments should be consulted on the maintenance requirements of the
proposed development for incorporation in the engineering/lease conditions.
Project Implementation
2.3.10All private cavern projects should follow the normal works approval procedures
as surface developments Relevant submissions and approvals are to be coordinated by the Building Authority in consultation with other departments.
Caverns or any underground space adopted or constructed for occupation for
any purpose, including associated access tunnels and access shafts, are
considered to be buildings under Section 2(1) of the Buildings Ordinance. For
public projects, the works agent would be required to comply with the
Engineering Conditions for the land allocation.
2.3.11 To secure the operation and structural safety of the rock cavern development, a
protection zone covering an area surrounding the development would be defined
by the private developer or Government's works agent following detailed design
and construction of the cavern. The GEO should be consulted on the proposed
extent of the protection zone. The protection zone would be annotated on the
ODP/LP and relevant departments, in particular GEO and BOO, should be
consulted for any future development proposals traversing this zone.