THE FEASIBILITY OF
SEQUENTIAL APPROACHIN THE DEVELOPMENT PLAN SYSTEM OF MALAYSIA
JABATAN PERANCANGAN BANDAR DAN DESA
SEMENANJUNG MALAYSIA
KEMENTERIAN PERUMAHAN DAN KERAJAAN TEMPATAN
a monograf
THE FEASIBILITY OF
SEQUENTIAL APPROACHIN THE DEVELOPMENT PLAN SYSTEM OF MALAYSIA
JABATAN PERANCANGAN BANDAR DAN DESA
SEMENANJUNG MALAYSIA
KEMENTERIAN PERUMAHAN DAN KERAJAAN TEMPATAN
TÅÉÇÉzÜty
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1.0 ABOUT THE SEQUENTIAL APPROACH
1.1 ITS DEFINITION
In essence, the Sequential Approach to
Planning constitutes one of the techniques
towards sustainable development. It is a
method of monitoring physical development
and in the planning system and process,
ensures that physical development meets up
with demand. The approach also ensures
that “Brownfield” sites as well as previously
developed sites, be given priority for
development, over “Greenfield” areas. In this way, urban sprawl is minimized, there is
no oversupply in development products (housing or commercial floor space), and
existing infrastructures are fully utilized.
1.2 ITS HISTORY
This Sequential Approach in planning and development had been practiced in the UK
since 1996 through the Planning Policy Guidance (PPG) No.6 issued by the Department
of Environment, Transport and the Regions, on Town Centres and Retail
Developments, and then followed by PPG 3, on Housing, in 2002.
For Town Centre developments, the manner of the Sequential Approach is first
preference to town centre locations (inner city), then edge of town centres (outer city)
and finally out of town centres ( peripheral areas). As an example please refer to Figure
1.0 the basic concept of the Sequential Approach.
Greenfield land is a term used to
describe a piece of undeveloped land,
either currently used for agriculture or
just left to nature.
Brownfield land is an area that has
previously been developed, such as a
paved lot or the site of a demolished
building.
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The Principles of the Sequential Approach have been described in the Planning Policy
Guidelines (PPG) of the Department of the Environment, Transport and the Regions,
United Kingdom, in particular PPG No.6.
PPG No.6 (June 1996) relates to Planning guidelines for Town Centres and Retail
developments, in which emphasise the plan-led approach to promoting retail, leisure
and employment development. It establishes a Sequential Approach …”with
preference to Town Centre locations, then edge-of-town centre and finally out-of-town
centre.
This has been followed by PPG 3 (March 2002), which is a guideline on Housing. PPG 3
encourages “new housing to be provided in such a way as to promote sustainable
forms of development, making the most efficient use of previously developed land.
This is to be achieved by amongst other things, concentrating most additional housing
development within urban areas; maximising the use of “Brownfield” sites and the
conversion/re-use of existing buildings; and, securing minimum development densities
of between 30-50 dwellings per hectare.”
Figure 1.0 The Basic Concept Of The Sequential Approach.
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1.3 OBJECTIVES OF THE SEQUENTIAL APPROACH
Amongst the important objectives of Sequential Approach are:-
To achieve sustainable development in reducing the
encroachment of cities into valuable Greenfield areas;
To maximize land use within existing city or urban centres
by developing on previously developed lands, or
Brownfield sites;
To retain the city core as the most vibrant commercial
centre, thus maximizing on the use of existing public
transport and other amenities;
To bring back people into the inner cities so as to make
city centre vibrant, reintroduce social places where
people can live, work and play;
To integrate land use planning and transport by reducing
the need to travel and promote increased accessibility to
jobs, services and facilities;
To address the issue of property overhang due to
speculation.
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1.4 HOW ITS WORKS
Figure 1.2 explains diagrammatically as to how Sequential Approach work in Planning
and Development
Figure 1.2: Methodology of Using Sequential Approach to Planning and Development
i. Identifying areas and sites
All types of development plans should provide clear guidance as to the location
of new developments so that it meets housing requirements in the most
sustainable way, hence:
At the regional level, major areas of growth in the region are identified and
determined where housing provision is to be sought by structure plan with
good accessibility.
at the strategic planning level or structure plans growth areas and
distribution of additional housing areas likely to be required to district level
should be identified; and
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At the local level, local plans and Special Area Plans should identify sites for
housing and buildings for conversion and re-use sufficient to meet housing
requirements after making an allowance for windfalls and manage the
release of land over the plan period.
In preparing development plans Local planning authorities should adopt a
systematic approach to assess the development potential of sites, and the
redevelopment potential of existing buildings, deciding which are most suitable
for housing developments and the sequence in which developments should
take place.
ii. Allocating and Releasing Land for Development
In determining the order in which sites identified in accordance with the criteria
set out, the presumption will be that previously-developed sites (or buildings for
re-use or conversion) should be developed before Greenfield sites. The
exception to this principle will be where previously-developed sites perform so
poorly in relation to the criteria listed as to preclude their use for housing
(within the relevant plan period or phase) before a particular Greenfield site.
Local authorities should manage the release of sites over the plan period in
order to control the pattern and speed of urban growth, ensure that the new
infrastructure is coordinated with new housing development and deliver the
local authority’s recycling target. It is for each local planning authority to
determine the form of such phasing policies but good practice guidance will be
issued. One possible approach to manage the release of land for housing is to
divide the plan into three phases, allocating sites for development in accordance
with the set criteria and assumptions.
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1.5 REQUIREMENTS FOR IMPLEMENTATION
There are several factors and elements that are required the for the implementation of
the sequential approach. These have been well outlined in Scotland’s NPPG8 as
extracted below:
i. Support of Town Centres as the First Choice
It has been recognized that the application of the sequential approach requires
flexibility and realism from developers and retailers as well as planning
authorities in preparing their proposals developers and retailers should have
regard to the format, design, scale of the development, and the amount of car
parking in relation to the circumstances of the particular town centre. In
addition they should also address the need to identify and assemble sites
which can meet not only their requirements, but in a manner sympathetic to
the town setting.
ii. Action required -Development Plans
In preparing development plans, planning authorities should take account of
the broad forecasts of retail demand, deficiencies in retailing provision (if any),
and how the retail sector is likely to respond to that demand over the plan
period, by reference to location and type of retailing. Likewise, they should
take account of the market demand for other related developments, such as
commercial leisure developments.
They should, in consultation with business interests and the local community,
seek to agree a framework for promoting the retailing and commercial leisure
roles of town centres, co-ordinated with their policies on transport, car parking
and regeneration. This should lead to a town centre strategy involving the
private sector including retailers, leisure operators, property owners and
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investors, and infrastructure providers, setting out the scope and policies for
change, renewal and diversification.
iii. Identify Qualities of the Town Centre
Planning authorities should identify and build on the essential qualities of the
centre and seek to ensure that it meets the needs of the community it serves.
Important considerations will include:
the opportunities for growth, improvement or redevelopment
(including sites on the edge of centres) and the need to encourage
the best use of existing facilities;
the scope for diversification of uses to broaden the range of town
centre activities ;
accessibility, the impact of traffic, and the availability of public
transport ;
the need to retain and improve open space and recreational
opportunities;
The opportunities for housing and offices, particularly in mixed-use
developments; and scope for adding to the quality of the urban
environment.
iv Establishing Priorities
Within that context it should be possible to establish the extent to which the
town centre in the first instance, and edge-of-centre in the second instance,
can satisfy that demand through development and change. As part of the
overall provision, consideration should be given to the role of out-of-centre
developments and whether there is a requirement for further such provision. If
so, such developments should always be within the overall policy objective of
giving priority to, and strengthening and safeguarding, the town centre. The
scope for provision of any new out-of-centre development should satisfy all
and should be incorporated in the development plan for the area.
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iv. Likely Impact on Rural Areas
Where appropriate, development plans should take account of the likely
impact of major shopping proposals on rural areas. They should also ensure
that their policies are compatible with the aim of encouraging sustainable
development and generally seek to minimise travel demand for shopping in
their locational decisions. In devising policies for the overall retailing and
commercial leisure strategies, planning authorities should take account of the
existing stock of recently developed floor space and the likelihood of other
approved proposals being developed.
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2.0 ITS RELEVANCY AND APPLICABILITY IN THE MALAYSIAN CONTEXT
2.1 TRENDS AND PROBLEMS OF URBAN GROWTH AND
DEVELOPMENT IN PENINSULAR MALAYSIA
2.1.1 Kuala Lumpur Metropolitan Areas
The most prominent case of rapid growth of the suburb or the urban sprawl is
in the Kuala Lumpur Metropolitan Area. While the rapid growth of Kuala
Lumpur is undeniable, a closer look of population data, especially those
starting from the 1980 Census showed that most of the urban growth in Klang
Valley for the past two decades occurred outside of the city limit of Kuala
Lumpur, i.e. the suburbs. Kuala Lumpur population growth was adversely
affected by this development.
Kuala Lumpur’s population growth rate between 1980 to 2000 was much less
than that of Malaysia as a whole. This is in contrast to its rate of growth since
its establishments more than 100 years ago where the rate of population
increase for Kuala Lumpur
was much higher than the
nation’s average. In between
1970 to 1980, population
growth rate of Kuala Lumpur
was at 3.50 percent where as
Malaysia’s average was 2.30
percent.
During the five years period of 1986-1991, almost half of Kuala Lumpur
outmigration to Selangor was to Hulu Langat District, followed by Petaling and
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Gombak Districts. Due to the high migration rates, the Petaling District which
was only a third the size of Kuala Lumpur in 1970 is now about the size of the
city; Hulu Langat grew from only 20 percent of the size of Kuala Lumpur to
about 75 percent of the size of the capital in the same 20 years period. This has
led to the expansion of urban built-up in Klang Valley.
This urban sprawl trend which started in 1980 is expected to continue in the
future as more lands are opened up in the Klang Valley and better
transportation infrastructures are put in place. The trend of urban sprawl of
Klang Valley is vividly shown by Ahris Yaakop in Figure 2.1.
Figure 2.1: Urban Built-up Area Morphology in Klang Valley
Source: Ahris Yaakup et.al (UTM) National Planning Seminar 21 November 2005
Year 1988 Year 1990
Year 1996
Year 1994
Year 1998 Year 1999
Year 2002 Year 2004
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2.1.2 Penang and Georgetown
The City of Georgetown and its surrounding area is the second largest
metropolitan area in Malaysia. The dominance of Georgetown as the main
urban centre of Penang and the northern region was much evidenced ever
since the founding of the city a few centuries ago.
Things began to change since the
1980s, however. The attractiveness of
Georgetown and its dominance has
started to wane off. Due to the high
cost of living in the city as well as the
relative attractiveness of new
development outside the city, many
people started to migrate out of Georgetown to newly opened areas. Districts
outside of Georgetown started to attract more people and grew very rapidly
since the 1980s.
Table 2.2: Population Ditsribution by District, Penang State, 1970-2000
Source: Statistic Department Malaysia, 2005 cited by Zuwairi, 2006
District 1970 1980 1991 2000
Population % Population % Population % Population %
Central SP
117,475
15.19
161,975
17.98
236,270
22.20
294,051
23.88
North SP
161,524
20.89
199,449
22.14
224,647
21.11
243,938
19.81
Southern SP
63,626
8.23
71,558
7.94
84,771
7.97
117,722
9.56
North East
369,991
47.84
391,400
43.45
395,714
37.18
416,369
33.82
North West
60,711
7.85
76,390
8.49
122,764
11.54
159,129
12.93
Pulau Pinang 773,327 100.00 900,772 100.00 1,064,166 100.00 1,231,209 100.00
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Table 2.2 shows at the macro level the population trend in the state of Penang.
One notable change is the reduced importance of the North East district,
where Georgetown is located, as the centre of population concentration in the
state. The percentage of the state population living in North East was reduced
from almost half (48%) in 1970 to only 34 percent in 2000.
On the other hand, Central Seberang Perai (where Butterworth and Bukit
Mertajam are located), Southern Seberang Perai (where Batu Kawan is
located) and North West had increased their shares of the state population.
The trend here shows that districts surrounding the North East District, i.e.,
North West, Central SP and Southern had increased their shares of the
population while North East share had decreased. This may be one indication
of urban sprawl phenomenon that had happened in the state.
2.2 CURRENT URBAN GROWTH ISSUES.
The feasibility of the Sequential Approach and its application as well as adoption into
the Malaysian Planning and Development System is actually determined by our very
own urban growth issues faced in the local scenes especially in areas of:
i. Trends and problems of urban growth, urbanization and development in
Peninsular Malaysia.
ii. The urban sprawl phenomenon.
iii. Severity of property overhang.
iv. Urbanites quality of living demands.
v. The urban governance mechanisms.
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2.1.1 The Urbanization Challenges
Our Urbanization challenges actually started since the '70s when the New Economic
Policies was launched. Urban areas saw drastic in-migrations of the rural population
into the urban areas. In 1991, 51% of the Malaysian population had resided in urban
areas. Now, the urban population is 65% and by year 2020, it's expected that more than
75% of the population will live in towns especially in the metropolitan areas of Kuala
Lumpur and Penang as identified by the National Physical Plan (NPP).
a) Unsustainable development Issues
An important aspect of planning
for growth and development is
hence to ensure that the goals
and objectives are not only
achieved but are also sustainable.
Urbanization and the resulting
urban sprawl have serious
implications on the goals of
achieving sustainability.
“Although this definition is more concerned with the rate of use of resources that will
not enable the resources to be able to be replenished in the future, “sustainable
development” encompasses sustainability of economic and social development as well
as of environmental and ecological protection.
The definition commonly used for
“sustainable development” is
“development that meets the
needs of the present without
compromising the ability of future
generations to meet their own
needs.” (Brundtland, 1987)
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Amongst the impact of urbanization and sprawl on the issues of sustainability are listed
below.
Impact of Depletion of Natural Land Resources
Urban Heat Island Effect
Urban heat island is a metropolitan area
which is significantly warmer than its
surroundings. As population centres grow
in size from village to town to city, they
tend to have a corresponding increase in
average temperature (Wikipedia, 2006).
The degree of the temperatures depends
on the size of the metropolitan area.
Increasing Consumption of Energy
A further consequence of sprawl that consumes land and reduces population densities
is the growing consumption of energy. Figure 2.2 shows 17 cities around the world that
reflect a consistent link between population densities and energy consumption. The
lower population densities and high rate of energy consumption characterize the
sprawl phenomenon.
Transportation
Another consequence of urban sprawl is the impact on transportation. Transportation
is also related to energy use. However, the rate of energy consumption in cities
depends on numerous factors including the nature of the rail and road network, level
provision of mass transportation systems and the proportion between private and
public transport. An increase in private transportation relates to energy consumption
which in turn leads to an increase in the emission of carbon dioxide to the atmosphere.
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If cities provide poor public transportation system, the use of private car increases and
energy consumption increases (European Environmental Agency, 2006).
Loss of Natural and Protected Areas
Urbanization also leaves an impact on natural resources. The natural environment is a
vital part of the ecosystem functions that performs including the production of food,
habitat for natural species, recreation, water retention and storage. Land use
conversions from forest reserve to new development harm the natural ecosystem. The
immediate impact of sprawl is the lost of agriculture and natural land or exploitation of
forest, wetland, and other habitats. These inevitably will also give an impact on the
quality of life and human health such as poor air quality and high noise level.
Socio – Economic Impact
From the social point of view, urbanization and sprawl has generated social
segregation of according to income. Unlike the middle and high income groups, people
in the lower income group cannot afford to own private automobiles. The middle and
high income groups are the ones who move out of the urban cores to avoid the
expensive cost of living and the congestion. This has caused residential segregation
between those in the urban cores and the suburban areas.
From an economic point of view, urbanization and sprawl has had an impact on the
increase in household spending on commuting from home to work over longer
distances, the cost to business of the congestion in sprawled urban areas with
inefficient transportation systems and the additional costs of the extension of urban
infrastructures including utilities and related services across the urban region
(European Environmental Agency, 2006).
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b) The Urban Sprawl
One distinct phenomenon is the urban growth or sprawl which is marked by haphazard
expansion of urban areas and city limits. Urban sprawl had become the trend in most
towns. The old town areas were left out and outpaced by developments at its outskirts
and around the centres.
With the advancement of highways and rapid train commuter services, more and more
people prefer to stay away from city centres and would rather commute to work daily.
However, this brought forth other problems like urban decays, Brownfield’s,
abandoned developments, slow development, little retail businesses and uneconomic
use of valuable town lands. Downtown areas soon found themselves deserted at
nights, crimes and social ills and activities became more rampant. Aesthetically, the
image of the old town became ugly and environmentally unkempt.
Other negative features of urban
sprawl include sluggish economic
activities, scattered
developments, low densities and
uneconomic use of urban lands.
Urban sprawl also requires
extension of roads and
transportation and phenomenon
of commuting population.
Figure 2.2 Penang City Boundary (a)
Inner City
Outer City
Peripheral Area
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Figure 2.3 Penang City Boundary (b)
Urban sprawl had introduced new
problems to the new areas. More
investments need to be put into
Infrastructures, public amenities, social
facilities and recreational facilities. Also
they began to eat into or encroach into
agricultural lands and the Greenfields.
Please refer to Figure 2.2 and Figure 2.3
which illustrates the evolution of the urban
sprawl phenomena in Penang. Likewise
Figure 2.4 explains the similar trends of
urban sprawl as experienced by Seremban.
c) Property Overhang.
The NAPIC (Pusat Maklumat
Harta Tanah Negara) Q1, 2007
report, states that the overhang
of residential units in Malaysia
have increased from 25,331 units
in Q4 2006 to 26,045 units in Q1,
2007. Most of these overhang
units have been in the market
for more than 24 months. Two
Towns were studied i.e. Penang
and Seremban.
Figure 2.2 Seremban City Boundary
Inner City
Outer City
Peripheral Area
Inner City
Outer City
Peripheral
Area
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Penang
Penang’s overhang situation is however amongst the lowest with some 433 residential
units of overhang. Most of these units are located in Seberang Perai and the South
West District which comprise of terraces, condominiums, apartments and some
detached units.
Penang’s overhang situation is amongst the lowest with some 433 residential units of
overhang. Most of these units are located in Seberang Perai and District Barat Daya
comprising of terraces, condominiums, apartments and some detached units. There
were no overhang shop units or industrial units in District Timur Laut according to the
NAPIC Q1, 2007 report. The incident of overhang in Georgetown and its periphery is
therefore a non-issue.
There were no overhang shop units or industrial units in the North East District.
Seremban.
Seremban’s overhang situation is currently at 1,940 of residential units and 637
of commercial unit. Most of these units are located in the District of Seremban
comprising of terraces, detached, condominiums and low cost flats. The District has a
total of 1,369 units of residential overhang. The breakdown of overhang of residential
properties in the District shows 28% were for low cost flats, 27% for 2 storey terraces,
15% each for 1 storey terraces and detached and 14% for condominiums.
In comparison to Penang which has no overhang problems, Negeri Sembilan’s
overhang in 2007 is said to be rather serious, especially as development trends in the
District of Seremban, tends to be developed in the outskirts and a strong trend
towards leap frog developments and urban sprawl.
Property overhang in Seremban is evidenced by longstanding abandoned projects
then. These include commercial buildings, shopping complexes, hotels and
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residential neighbourhoods which were found outside the Seremban central areas.
Housing in Seremban 2 for example was mostly abandoned or were left uninhabited.
Seremban 3 and Sungai Gadut housing too were mostly left vacant.
d) Urbanites Quality of living.
Quality of Living is not only about adequate facilities, amenities, infrastructure,
housing, recreation, jobs, education, health and such like but more so in terms of its
environment, easy and convenient mobility, clean air, clean water, peace and harmony.
In fact, Quality of Living covers a whole spectrum of human basic needs and wants.
These should also be sustainable to be enjoyed by the present generations and
generations to come. Therefore, Quality of Living is made possible when development
is sustainable.
Sustainable development covers a very wide range of activities. Four key areas have
been identified to render developments sustainable:-
i. To achieve sustainable consumption and production:
ii. To tackle climate change and energy depletion.
iii. To understand the limits of the natural resources that sustains life, such as water,
air and soil.
iv. To create sustainable communities.
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e) The Urban Governance Mechanism.
Issues pertaining to ineffective Urban Governance that are currently faced by Malaysia
are:-
i. Uncoordinated and unintegrated planning management approach. Different
authorities have different procedures and priorities.
ii. Lack of community participation and support in the development process. Even
though there are provisions for public participation, but feedbacks have not
been constructive.
iii. Lack of Incentive-based and Performance-based Control Guidelines and
Licensing Control.
iv. Ineffective growth controls, incentives, tax policies and design controls.
v. Inflexible development control methods and unviable Local Plan mechanism of
Development Charges collection and the control of development Transfer of
Development Rights.
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3.0 THE CURRENT TOWN PLANNING PRACTICES AND DEVELOPMENT PLANS SYSTEM
To ensure good urban growth and development, we need good planning and
management. We need to formulate effective plans for urban development and
growth and to implement and manage the development and growth well, by adopting
a good system and set of procedures for the preparation of these plans and for the
control and management of growth. These processes include:-
i. development planning, i.e. the formulation of plans and policies to guide
development;
ii. development control, i.e. the regulation of the development, use and
management of land; and
iii. plan implementation, monitoring and enforcement.
3.1 THE CURRENT TOWN PLANNING PRACTICES
3.1.1 DEVELOPMENT PLANNING
The current town planning practices are in the form of Development Plans.
Development Planning is the process of formulating plans to guide, facilitate and
coordinate the use, development and management of land in order to achieve the
desired goals for the future growth of the area.
i. The Development Planning Practices
Under the development planning system in Peninsular Malaysia these plans and
policies are formulated at national, regional, and local authority levels, as provided for
under The Town and Country Planning Act 1976(TCPA). These plans include:
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As far as strategies which are related to urbanisation and the Sequential Approach, the
NPP outlined two major strategies:-
• That planning of urban-based economic activities shall adopt the concept of
“Selective Concentration” for strategic urban centres for all States.
• That identification and delineation of the Strategic Urban Conurbations should
represent their specific Zones i.e. The Northern Conurbation, The KL Conurbation,
The Southern Conurbation and The Eastern Conurbation.
For the Kuala Lumpur which is the National Growth Conurbation a 45 minutes
travel time from the employment centres of core cities has been demarcated.
Whereas For all other conurbations travel time from the employment centre of
the core city is 30 minutes demarcation.
Other parameters taken into consideration in the detailing of the delineation of
conurbations have been:
Committed Development.
Use of vacant land within the present built-up area, rehabilitation and
redevelopment of existing building sites.
Physical: buildings based on concentration.
Exclusion of Prime Agricultural Areas (PAA) as designated by the NPP.
Exclusion of Priority Environmentally Sensitive Areas (ESA) as designated by
the NPP.
a. The National Physical Plan, prepared by the Director General of the Federal
Department of Town and Country Planning, under section 6B of the TCPA.
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The Structure Plan outline strategic framework such as:-
set out the policy for supporting and enhancing town centers, including an
assessment of how far the existing town centers might be able to meet the
demands for new shopping floor space and other uses, while contributing to
consumer choice and access
indicate whether, as part of the sequential approach, there is scope for retail
developments with town centres; if so, indicate their scale and general
location, ensuring co-ordination with expected housing, employment, or other
planned developments, including transport infrastructure; and
Reflect the criteria set out in this guideline against which retail and commercial
leisure development proposals with town centers should be assessed.
Like the Structure Plans, elements of urban growth strategies and measures to develop
the Town Planning Blocks and the Sub Planning Blocks in Local Plans are streamlined
towards development priorities on existing urban centres .
Local plans provide local details and a sharper focus to the structure plan framework.
These include:-
assessment the performance of individual town centers indicate their potential
for change, improvement or stability;
b. The Structure Plan, prepared by the State Director of the Town and Country
Planning Department, under section 8 of the TCPA.
c. The Local Plan, prepared by the Local Planning Authority, under section 12 of the
TCPA.
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safeguard and support existing town centers and other retail facilities, such as
local centers and village shops, which serve the local community well;
identify sites, including those suitable and available within a reasonable
timescale, for new retail and commercial leisure developments within town
centers, and, where appropriate, at the edge-of-centre;
provide guidance to developers who propose new developments out of the
framework of preferred sites in the development plan, and indicate how such
developments will be assessed; and
Include related policies for transport, car parking and for improving the
environmental quality of town centers, retail and commercial leisure
developments, and specify design criteria and standards against which
proposals will be judged, including those in out-of-centre locations.
A Special Area is an area planned for special and detail treatment by development,
redevelopment, improvement, and/or conservation. The Local Plan can designate the
agency or agencies to carry out the development and spell out the manner in which it is
to be implemented. A Special Area Plan is hence a more detailed local plan for an area
that has been ear marked for immediate or urgent development
d. The Special Area Plan, prepared either by the State Director of Town and
Country Planning or the Local Planning Authority as directed by the State
Planning Committee under Section 16B of the TCPA.
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The Comprehensive Regional Plan will cover for any area which covers two or more
states, whose main function is to establish policies and to devise a Comprehensive
Regional planning, to plan, guide and coordinate development and the provision of
infrastructure and facilities in the region, to monitor the implementation of
development standards, guideline and procedures, and to conduct research required
for the planning of its region.
3.1.2 WEAKNESSES OF THE PRESENT DEVELOPMENT PLANNING PROCESS
However the weaknesses and problems in the preparation of development plans can
be summarised as follows:
i. The Plan Preparation Process Is Too Long And Costly.
The structure plan and local plan preparation processes follow a very
comprehensive, systematic and meticulous process, incorporating survey,
compilation and analysis of data, plan formulation and public participation and
objection, as required under the TCPA.
ii. The Planning Problems and Issues Are Not Well Identified.
Even with so much data collection, there are weaknesses in the analysis,
identifying and understanding of certain important planning issues and
problems in the planning area and the causes of these problems, especially the
social and non-tangible issues, such as urban and rural poverty, unemployment
and under-employment, inaccessibility to urban needs, increasing crime rates,
increasing cost of living, widening of income gaps, social segregation, and
other problems of non-sustainable development. This has often resulted in, at
e. The Comprehensive Regional Plan, prepared by the Regional Planning
Committee under section 6A of the TCPA.
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the least, the issues and problems not being resolved, or worse, the problems
further aggravated by inappropriate planning proposals and strategies in the
development plan.
iii. The Public Participation Process Is Not Effective.
The requirement for public participation in the preparation of structure plans
and local plans is a positive step towards involving the people who will be
affected by the plans for the better understanding and identification of
problems and for better selection of planning options.
However the process takes a long time and has contributed to the delay in the
plan preparation process. It has in many cases been found to be an ineffective
process. The public participation in the structure and local plan preparation
process often mainly involves a very small proportion of the people. Most of
the people who may be affected by the proposals of the development plan are
not even aware of the plan.
iv. Development Plans Are Not Responsive and Effective
Many of the proposals and strategies in the structure plans and local plans are
not directly responsive to the issues and problems and hence not effective in
solving the problems. One main reason is that urban problems and issues,
especially the social and non-tangible ones, are not easily translated into
physical planning solutions. Another reason is that the development plans are
still based very heavily on archaic approach of planning, such as fixed and rigid
land-use zoning. Other more flexible but more responsive and effective
planning approaches should be examined for adoption. A system to measure
the effectiveness and responsiveness of development plan proposals and
strategies need to be formulated.
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v) Development plans are not action-orientated and time-specific.
Many structure plans and local plans are not sufficiently action-orientated and
time-specific. They do not indicate the priority and the schedule for the release
of land for development, thus allowing developers to carry out development at
their own time, site and pace, resulting in urban sprawl, leap-frog
development, insufficient infrastructure and facilities, and mismatch between
demand and supply.
The Sequential Approach requires the adoption of more action-orientated and
time-specific development planning. There should be an in-built control in the
release of land for development and appropriate incentives given to ensure
that growth and development are properly integrated and channelled into
more suitable areas.
vi. Development plans are too rigid or too vague.
Development Plans and planning guidelines should not be too rigid or too
vague. A plan which is too rigid does not allow any room for innovative
planning on the part of developers and consultants. On the other hand, if it is
too vague, it will not provide a clear guide for developers and their consultants
and the government decision-makers.
vii. Planners and decision-makers preparing development plans are not made to
feel responsible and accountable.
The quality of development plans depend very much on the quality and
dedication of the people who are involved in the formulation and approval of
the plans, be they external consultants, government officers, or the politician
decision-makers. They should be made to feel responsible and to be
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accountable to the people who will be most affected by the outcome of the
plans and their decisions. On the other hand, they should be able to take credit
if the plans or decisions create the expected benefits and gains to the people.
A system of measuring and monitoring responsibility and accountability of
decisions should be formulated.
viii. Inadequate analysis of the impact of development proposals during the plan
formulation process.
In the preparation of development plans and in the formulation of planning
options, development proposals and strategies, there is often no adequate
impact or cost-benefit analysis of the proposals and strategies. This leads to
poor decision-making in the choosing of planning options and in the approval
of the development plan. A form of Strategic Environmental Assessment (SEA)
can be formulated and applied for this purpose of aiding decision-making in the
preparation of development plans.
ix. Lack of Coordination and Integration among agencies and departments in
planning
There is lack of coordination and integration among the planning of the various
departments involved in the development and use of land, such as between
Federal, State and Local agencies, between the government and private sector
agencies, and between the Local Authorities and other departments and
agencies in charge of roads and infrastructure development, schools and other
facilities and services, traffic planning and management, and economic
development and environmental protection.
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3.2 DEVELOPMENT CONTROL AND LAND MANAGEMENT
Development control is the day-to-day regulation and control of the development and
use of land. Without development control development planning will be futile.
3.2.1 THE DEVELOPMENT CONTROL AND LAND MANAGEMENT PROCESS.
This involves various processes such as:-
i. The Planning Permission Process.
Section 18 of the TCPA prohibits any person to use any land or building if it is not in
conformity with the local plan. Section 19 prohibits any person to carry out any
development without the planning permission of the LPA, and section 21 spells
out the process for obtaining a planning permission by any person proposing to
carry out any development. Section 22 spells out the procedures for the
consideration of the planning application by the LPA. Under section 23 of the
TCPA, an applicant or an objector who is aggrieved with the decision of the LPA in
the approval or rejection of the application can make an appeal to the Appeal
Board against the decision of the LPA.
ii. Variation of Conditions, Restrictions and Categories of Land Use
Part Seven of the National Land Code (NLC), subjects all alienated land to implied
and expressed conditions and restrictions. Under sections 115, 116 and 117, the
implied conditions affect lands subject to the various categories of land use i.e.
“agriculture”, “building” and “industry”, and, under section 119, to lands which
contain expressions of “padi”. Section 124 empowers the State Authority, upon
the application of the land owner, to alter of the category of land use of his land,
to remove the expression of “padi”, “rubber” or “kampong” in the land title, or to
impose and amend any expressed conditions. This process is carried out without
referring to the LPA or SPC. Section 108 further states that where any condition
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on the land title is inconsistent with any by-law or restrictions affecting the land
imposed by any local authority or planning authority, the condition shall prevail
and the local authority or planning authority by-law or restriction shall, to the
extent of the inconsistency, cease to apply to the land.
iii. Sub-division, Partitioning and Amalgamation of Land
Under section 135 of the National Land Code (NLC), any land owner can sub-divide
his land, with the approval of the State Director of Lands and Mines or the Land
Administrator, as long as it satisfies a set of conditions spelt out in section 136 (1),
which include the conditions that any necessary approval of any planning
authority has been obtained, and that the sub-division would not be contrary to
any plan approved by the State Authority for the development of the area, or the
any decision of any planning authority of the area. There is no provision in the NLC
for any authority to impose new implied or expressed conditions or restrictions or
vary any conditions or restrictions or the category of land use of the land in the
process of sub-division.
Similarly, under section 140, joint land owners can partition their land so that each
new parcel is vested in the name of each of the land owners after partitioning. The
same set of prerequisite conditions as in section 136(1) has to be satisfied.
Under section 146, a land owner can amalgamate his two or more contiguous lots,
if the same set of prerequisite conditions is satisfied. However in the
amalgamation of lands, the condition or restriction or category of land use of any
of the land can be changed by the State Authority if necessary if there exist any
dissimilarity between any of the original lots to be amalgamated.
vi. Excision of Hill Lands and Degazetting from Forest Reserves
Under the Land Conservation Act, hill lands are gazetted and protected from
development. The State Authority has the power, however, to excise any
gazetted hill land, and need not legally comply with the Structure plan or Local
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Plan. On the other hand, if there is any inconsistency between the State
Authority’s decision to excise a land from Hill Land and the proposal in the
Structure Plan or Local Plan in relation to that land, the decision of the excision
will prevail.
Similarly the State Authority has the power to degazette any forest land under the
National Forestry Act, notwithstanding the proposals in the Structure Plan or
Local Plan. Even the National Physical Plan may not have adequate enforcement
means to ensure compliance in the degazetting of forest reserves or excision of
hill lands by the State Authority.
v. The One Stop Centre (OSC) System.
In April 2007, the Ministry of Housing and Local Government prepared a circular
on the implementation of the One Stop Centre (OSC) system and, with the
approval of the National Local Government Council, directed all state authorities
and local planning authorities to adopt the new system.
The OSC is intended to shorten the time for the processing of the various
applications for approvals of development by:
increasing the number of staff in the processing of the applications in the LPA,
coordinating and monitoring the comments and requirements of all the
relevant departments involved in the processing,
allowing all the plans for development to be submitted and processed
concurrently,
given a limited time frame for all the stages of processing,
Replacing the planning committee with an OSC committee in every LPA.
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3.2.2 WEAKNESSES OF THE PRESENT DEVELOPMENT CONTROL AND LAND
MANAGEMENT PROCESS
The weaknesses in the development control and land management processes are
summarised as follows:
i. The planning permission process is unnecessary tedious and time-consuming.
The procedures in the approval of planning permission as presently practiced in
most local authority areas, is unnecessary tedious and time consuming. There
are many causes of these delays, including:
unclear development policies, plans and guidelines;
unclear and imprecise recommendations on the part of the planning
officers;
lack of staff in the processing of applications, in both quantity and quality;
indecisions in the consideration of the applications by the committee;
too many irrelevant and unnecessary, and sometimes conflicting,
requirements and comments from the technical departments;
too many departments and committees processing and considering the
applications;
unclear system and procedures of processing of applications, some steps
are unnecessary, overlapping and/or redundant;
the applicants and their agents are not competent;
Interferences from politicians.
ii. Poor Understanding of Development Plans, Guidelines and the Planning Law in
Development Control and Regulation.
There is often a gap, poor understanding and misinterpretation of the law,
policies, plans and guidelines by the LPAs when applications for planning
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permission are processed and considered. One of the reasons is that planning
officers who are involved in the daily processing of applications for
development were not involved in the preparation of the development plans or
briefed well on the details of the development plans and control guidelines.
iii. Approving authorities, officers and decision-makers do not feel responsible
and accountable for the outcome of their decisions.
The authorities, officers and decision-makers, as well as the developers and their
consultants, should be proficient and responsible and should be accountable to
the people who are subsequently affected by the result of their proposals,
recommendations and decisions.
The LPA is the authority responsible for granting planning permission, and the
State Authority is responsible for the alteration of category of land use, varying
of conditions and restrictions of land, excision of hill lands and “de gazetting” of
forest reserves.
Whereas in the consideration for planning permission the LPA has to abide by
the proposals in the Structure Plan and Local Plan, there is no such legal
restriction for the State Authority to change the category of land use under the
NLC, to excise “hill lands” under the Land Conservation Act, to de gazette from
forest reserves under the National Forestry Act. There should be greater
transparency in the approval process.
iv. The Appeal Process Takes Too Long a Time
Although the objectors, as well as the applicants, have a right to submit appeals
to the Appeal Board if they are unhappy with the decision of the LPA in
approving or rejecting the applications of planning permission, the process of
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being heard and considered by the Appeal Board takes a long time and is very
costly to the parties affected.
v. The use of IT systems and the internet is not adequately coordinated.
The use of appropriate computer and IT system and the internet will go a long
way to reduce the tediousness, hasten the process, reduce the uncertainties,
increase transparency, and to manage and up-date planning and development
data in the development control process. However, although some efforts have
been taken towards this, there is still a much room for improvement. There is as
yet no concerted effort to coordinate all these efforts or to install a uniform
system for electronic submission and consideration of applications of planning
permission or land matters for all LPAs and other relevant departments.
vi. There is no adequate method to assess the impact of proposed development.
A more precise set of criteria and indicators for sustainable development should
be formulated, and a more precise and quick method of evaluating the
environmental, social and economic impacts, as well as the costs and benefits of
the proposed development under consideration should be made available.
These will be invaluable for responsible and effective decision-making in the
development control process.
vii. Officers in the administration of land are not well versed with the NLC and the
TCPA.
Offices in the Department of Land and Mines, in charge of processing and
advising on applications for alteration of category of land use, subdivision,
amalgamation, and other land related matters, under the NLC, are often not
specifically trained in land laws, land administration, and planning laws, and are
also not conversant with the objectives of good land administration and
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management, good planning and orderly development. This has in some cases
led to decisions that are contrary to the laws and the development plans.
viii. No legal provisions for decisions on land applications to conform to the
development plans.
There are no provisions in the NLC, the Land Conservation Act and the National
Forestry Act, for State Authorities to comply with the proposals of the National
Physical Plan, The State Structure Plan or the Local Plan in their approval of
applications for alteration of category of land use, excision of hill lands, or
degazetting of forest reserves. There have been cases where areas zoned for
agriculture or hill land in the structure or local plan are approved for alteration
of the category of land use to “building” by the state authorities.
ix. LPAs do not consider the demand and supply situation in approving
development.
The LPAs and the State Authorities in their granting of planning permission and
the alteration of land use category from “agriculture” to “building” do not
consider the situation of oversupply of development. They may be unable to do
this due to lack of updated supply and demand data. The resultant overhang of
housing and commercial floor space is due to over approval and over
development.
3.3 THE PLAN IMPLEMENTATION, MONITORING AND ENFORCEMENT
After planning permission, other plan approvals and permits are required before the
development can be carried out. These plans when implemented need to be monitored
and followed through via the enforcement process and the list of relevant plans are as
follows:
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Road and Drainage Plan approval from the Local Authority (LA) as
required under the Street, Drainage and Building Act (SDBA),
Building Plan approval from the LA as required under the SDBA,
Structural Plan submitted to the LA as required under the SDBA,
Earthworks Plan approval from the LA as required under the SDBA,
Sub-division Plan approval by the State Director of Lands and Mines or the
Land Administrator under the NLC.
3.3.1 WEAKNESSES OF THE PLAN IMPLEMENTATION, MONITORING AND
ENFORCEMENT PROCESS
The weaknesses in the implementation, monitoring and enforcement process include
the following:
i. There is no control and coordination in the implementation of development
projects.
The local authorities do not monitor or control the sequence and schedule of
the construction / implementation of approved projects by private or
government developers and agencies. Development is often on an ad-hoc basis,
at the time, pace and site of individual developers, resulting in leap-frog
development, urban sprawl and the overhang of developed properties. Even
government and utility departments do not abide by the structure or local plans
programme, but instead carry out their own projects based on the departments’
own budgeting and implementation schedules. This often results in situations of
shortage or over-loading of utility services.
The preparation of development plans often relies on external consultants while
implementation and enforcement are carried out by the local council officers
who are often not directly involved in the tedious plan preparation process.
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There is hence often a gap, poor understanding and discontinuity during the
implementation and enforcement of the plans later on.
ii. The local authorities and other government agencies do not play an active role
in development.
Urban lands in Peninsular Malaysia are largely under private ownership. The
local authorities and other government agencies have to play a more proactive
role in the acquisition and amalgamation of land in order to apply the Sequential
Approach to redevelop more appropriate sites like “brown fields” and inner-city
areas, and to preserve “green field” areas.
iii. Insufficient incentives given for developers to carry out development in more
appropriate sites.
There are inadequate incentives to encourage developers to develop in more
appropriate areas and to avoid the encroachment into “green field” areas.
Local, state and central governments should introduce financial incentives such
as giving discounts in development charges, taxes and fees, or non-financial
ones like transfer of development rights, giving higher plot ratios and densities,
and fast-track approvals.
iv. Enforcement actions under the TCPA and the SDBA are slow and inadequate.
Some parts of the law and by-laws are not clear, out-of-date or are inadequate;
The supervising officers and inspectors are short handed or inefficient; in most
LPAs there are no planning inspectors, and hence offences and illegal
development under the TCPA are not spotted.
The charging and conviction of offenders through the court of law are tedious
and time consuming; there are often delay for cases to be heard and there is a
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long back log. (there have been proposals to set up municipal courts to hear
only local authority cases);
The fines and penalties are not high enough to create a significant deterrence
to potential offenders.
There are often interferences by politicians.
3.4 The Sequential Approach, Strengths and Weaknesses, Opportunities and Threat in the Malaysian context
The Sequential Approach in planning accentuates the provision of the Structure Plans
and Local Plans in that development should be undertaken within most suitable areas,
from the city core outwards and preferably within areas of good public transport
connectivity.
Based on the understanding of the mechanisms and implementation tools of the
Sequential Approach, certain strengths, weaknesses, opportunities and
challenge/threat of the approach in the light of the situation in Malaysia have been
identified:-
3.4.1 ITS STRENGTHS
i. That priority of development is given to the existing town centres.
ii. That development is brought back into the city centres. There are trends that
city centres become quiet and workers leave the city for their suburban homes.
With new developments of housing and commerce remaining within the
centres, the city centre is thus revitalized.
iii. Those compact development initiatives within city centres are exercised
commerce and residential use can be developed within a single plot of land,
vertical mixed use maximizes land use and other creative designs on limited
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land area proved to be important stimulants to rejuvenate town centres. This is
really a complete turnaround from the traditional single zone land use
planning.
iv. That many buildings worthy of heritage could be revitalized through
rehabilitation into commercial use. These indirectly encouraged greater
professional skills and creativity amongst planners, architects, designers, etc.
v. That development became more orderly, in that developers are encouraged to
build first within city areas before “leapfrogging” into Greenfield areas.
vi. That there is negligible wastage on existing infrastructure and in the long run
save on infrastructure costs.
3.4.2 ITS WEAKNESSES
i. For Sequential Approach to really be attractive and work towards a win-win
situation for the private sector, government (city authorities) and the
community, one essential factor is the need for an integrated public transport
system complete with extensive service coverage.
ii. Need to initiate a pilot project in the city centres to provide an example of the
project viability. It is usual that a pilot project be initiated on government land
wherever possible. However, there may be limitations since most state or
government lands within city centres are all built up for community facilities.
iii. Need incentives for new ideas or development policy approaches and Local
Authorities have to undertake this role.
iv. Need close monitoring of development applications. However, such practices
are still at the infancy stage in most cities in Malaysia.
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v. Need to identify particular lots that can be developed or redeveloped, the
permissible plot ratios, the allowable densities, setbacks, height of buildings,
commercial and residential mix ratio, car parking standards, the entry and exit
points of the plot, etc., At present Local Plans stage.
vi. Need to formulate detail of historic site or building so that any developments
will not be in contradiction with the Structure or local plan.
3.4.3 ITS OPPORTUNITIES
i. To formulate detailed development guidelines for city centres which include
height and densities, plot ratios, setbacks and built to line, vertical mix
development ratios, parking exemptions, etc.
ii. To preserve and rehabilitate buildings as well as areas of heritage value.
iii. To expedite the development and implementation of a comprehensive
integrated system of public transportation as the two goes hand in hand and is
systemic of one another. Height and densities, plot ratios, setbacks and built to
line, vertical mix development ratios, parking exemptions, etc.
iv. To preserve and rehabilitate buildings as well as areas of heritage value.
v. To expedite the development and implementation of a comprehensive
integrated system of public transportation as the two goes hand in hand and is
systemic of one another.
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3.4.4 ITS CHALLENGE/THREATS
i. The high cost of land in city centres, which will offset the profit margin of
potential developers.
ii. Great political commitment from policy makers, followed by extensive
implementation by local councils in the form of guidelines and incentives
(initially).
iii. Lack of community facilities within city centres to support a large and mixed
population that would be living therein.
iv. In city centres have broken up communities living in it.
In conclusion Table 3.1 compares the Strengths, Weaknesses, Opportunities and
Threats of the Sequential Approach in the Malaysian Context.
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Table 3.1: Summary of the SWOT Analysis – Strengths, Weaknesses,
Opportunities and Threats
S T R E N G T H S W E A K N E S S E S
Compact city
mixed development
orderly growth
Towards safe city
savings on infra cost
Greater accessibility
Towards sustainability
Re-vitalisation of heritage buildings
Re-vitalisation of heritage buildings
Lack of incentives
Public Transport
Transport network
Lack of government/ municipal
land
No monitoring of development
Lack of sufficient control
Lack of database
Lack detailed implementation
strategy to achieve policies
O P P O R T U N I T I E S T H R E A T S
Creation of development guidelines for
developers
- High densities
- Built to lines
- No parking provision
- Mixed development
Preservation/Conservation of heritage
building in City Centres
Promotion/ upgrading of public
transportation services
Re-vitalisation of City Centres
High land cost in City Centres
No political commitment
Huge private owned land bank
outside and inside City Centres
Malaysian preference for landed
property
Restrictions for development by
developers
Lack of community facilities to
sustain city living
Traffic management in City
Centres breaks the community.
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4.0 PROSPECTS OF THE SEQUENTIAL APPROACH
IMPLEMENTATION IN MALAYSIA
The Sequential Approach when first formulated was to address the property overhang
in many cities in the UK. However, as illustrated in the two Malaysia case studies,
property overhang is not such a major issue in George Town but an issue in Seremban,
due mainly to land speculation. It also indicated that the approach may be an
inadequate tool for cities of different sizes, history and its own peculiar urban growth
morphology.
However, prospect of Sequential Approach implementation in Malaysia would be good
should following prerequisites are put in place.
4.1 Prerequisites Required For Implementation of the
Sequential Approach
i. Need for Strong Political Will
From the growth and the SWOT analysis of the two cities’, it can be implied that the
most important criteria for the successful implementation of the Sequential Approach
is political will. Without political will, most developers will not support the idea nor will
implement such a strategy. Because private sector is about profits, any new policy that
affects the profit margin of companies will be unpopular but with political support, the
implementation of the approach will soon be realized and instituted.
ii. Fiscal Incentives
Another element for the Approach to work will be the kinds of incentives to be given
out. Fiscal incentives like company taxes and transfer of development rights should be
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further explored. Fiscal incentives are only awarded by the Ministry of Finance and
Bank Negara.
iii. An Integrated Transport System
For the Sequential Approach to be implemented successfully in the country and within
the major cities, the availability of an integrated public transport system is pertinent.
Easy accessibility of the development with areas from outside the city as well as from
within would be one of the factors that would make the development viable.
iv. Transparency and Publicity
Another major requirement for its successful implementation is that there must be
clear implementation and execution strategies that are transparent and readily
available for the public. These are important elements that would make the Sequential
Approach readily understood and accepted by those who will implement as well as
execute the development plans. These would include not just the developers but also
the utility companies and agencies, and other related government departments.
v. Comprehensive and Extensive Data Base and Close Monitoring.
Local authorities must prepare a sound and comprehensive data base to manage and
monitor the implementation of the Approach. Data such as location of the preferred
sites, ownership, development rights and guidelines, must be made available. Once an
application has been received, the progress of the application from planning approval
stage to construction and completion stage must be closely monitored. Therefore data
on demand and supply will be available as one of the objectives of the Sequential
Approach is to avoid oversupply of properties or property overhang.
vi. Availability of State and Local Government Land and Brownfield Sites
For the Sequential Approach to take off there must be extensive state or local
government lands or even Brownfield sites for pilot projects to be implemented.
Private developers can participate to undertake and showcase the success of the
Sequential Approach of these projects.
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vii. Amendments to Some Legislation.
For Sequential Approach to be implemented effectively, some related legislations need
to be amended and they are:-
Amendments to the Town and Country Planning Act 1976, especially
pertaining to Local Plans and Special Area Plans. More detailed design
guidelines will be included which will be based on property price analysis
and trends.
Amendment to the Uniform Building Bye-Laws, especially with regards to
building design. They are to be more flexible and allow for performance
based standards rather than prescriptive regulations.
Strata Titles Act – The recent amendments to allow for landed properties
as strata developments will encourage for more gated communities in
areas outside of city centres. The Act will have to be re-studied and
address the issue to allow and encourage for more intensive development
in city centres.
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5.0 CONCLUSION
Even though The Malaysian Planning System is rather complete with its hierarchy of
National, State, Regional and Local Plans right down to The Special Area Plan at very
localised level, the procedures as well as the processes of development plan approval
at each stage are quite elaborate and systematic. However, there are strengths and
weaknesses of the current system which could be improved especially pertaining to
optimum use of land resources, environment and the property trends towards the
realization of the attainment of Sustainable Development objectives.
Many of the country’s Structure and Local Plans lack the detailed implementation
strategy to achieve the objectives of the Sequential Approach.
For sequential approach to work, further details of the local plan must be formulated.
These should contain even more details such as the identification of particular lots that
can be developed or redeveloped, the permissible plot ratios, the allowable densities,
set-backs, height of buildings, commercial and residential mix, car parking standards,
the entry and exit point of the plot etc. If the development to be undertaken includes a
historic site building, then more details need to be formulated so that any development
will not contradict with the Structure or Local Plans. All these details will have to work
out within the current costs of land, development costs, current fiscal policies, etc.
Generally, the issues of urban sprawl and property overhang by types and prices as well
as location factors are symptoms of unsustainable developments that need to be
attended to. To use the Sequential Approach, there is the need for close monitoring of
development applications through detailed Data collection and Database system.
Consequently, Sequential Approach alone may not be sufficient to manage urban
growth and avoid urban sprawl in Malaysia. Other more encompassing approach is still
needed to address Malaysian peculiar urban trends and manner urbanization.
Therefore The Integrated Sustainable Urban Growth (ISUG) Management Approach is
recommended as the comprehensive approach feasible to be used in the Malaysian
Development Plan System to address our urban growth issues.
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1.0 THE ISUG APPROACH
The Integrated Sustainable Urban Growth ( ISUG ) is an approach that address urban
growth issues and development issues in an integrated, holistic, and sustainable
manner that can be incorporated in the development planning system of Peninsular
Malaysia.
The ISUG approach, which is now widely adopted in the UK, Europe, USA and Canada,
may be suitable to be emulated and practiced in Malaysia.
In order to adopt this approach in the planning, implementation and monitoring of
urban developments and the management of urban lives in the Malaysian context, this
study had explored its applicability, strengths and ways for its successful adoption and
practice.
1.1 IT’S DEFINITION
It refers to landuse and development practices that enhance the Quality of Life in urban
communities preserve the natural environment and save public money over time. And
most importantly the enjoyment of living in cities
and urban areas should be sustained for the
present until the future generations.
According to Smart Growth BC (British Columbia,
Canada (2002), a ‘Smart Growth” is a collection of
urban development strategies to reduce urban
sprawl and that enhances the quality of life,
protects the environment and use tax revenues
wisely.
“ISUG ” is defined as the
efforts of communities to
manage and direct its urban
growth which puts emphasis
on minimising damage to the
environment while building
liveable towns and cities for
them to enjoy.
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1.2 CRITERIA OF INTEGRATED SUSTAINABLE URBAN GROWTH
Hence, in essence ‘ISUG’ is all about the following criteria or ideas that help define it in
a comprehensive manner. They are:-
Creating more compact developments via infill developments and new
developments;
Encouraging infill development for more efficient use of existing urban assets
and infrastructures.
Creating walkable, transit oriented and mixed use developments;
Providing a variety of transportation choices (walk, cycle, transit and private
car);
Offering housing choices and mix of different type or cost of houses;
Promoting sense of community in new and expanding areas through quality
design and active public participation;
Conserving environmental sensitive areas and natural resources;
Protecting sufficient agriculture lands and food production sector; and
Establishing and maintaining urban growth boundaries.
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1.3 COMPARISON BETWEEN INTEGRATED SUSTAINABLE
URBAN GROWTH (ISUG) AND CONVENTIONAL (SPRAWL)
Table 1.1 summarise the comparison of the ISUG and the conventional urban
sprawl development.
Table 1.1: Comparison of the ISUG or Smart Growth versus the
Conventional Approach (Urban Sprawl)
ISUG TOPIC SPECIFIC
CONSIDERATION
COMPARISON
ISUG CONVENTION (SPRAWL)
Land supply,
landuse and
urban form
Land consumption More efficient use of land as a
limited resource.
Not as efficient and generally a more
excessive land consumption pattern,
larger individual lots.
Directional focus of
growth
Infill and redevelopment.
Maximum use of existing
developed areas.
Greenfield development. Expansion into
new / undeveloped areas.
Density / intensity Higher Lower
Urban form Compact and contiguous Scattered, dispersed and leapfrogged
Landuse Mixed-jobs and housing
balance
Single function and separated
Natural
resources and
the
environment
Values / ethics Land as a resource;
sustainability
Land as commodity;
Satisfy market preferences.
Open space provision Maintain, enhance and expand Provide when supported by market
force.
Provide as per Malaysian Government
requirement. Normally following the
minimum requirement only.
Open space location Proximate to all users;
connected
Inaccessible; unconnected; include
‘remnant’ parcels of left-over pieces of
land
Brownfield’s Clean up and reuse Abandon
Energy Conservation More consumptive due to separation of
users and location in areas without
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Source: Jerry Weitz & Associates, Inc (2001) in Atlanta Regional Commission, “Smart Growth Audit”.
infrastructure
Housing
Values / ethics Choice; diversity; affordability Provide what the market will bear.
Location Disperse in all locations,
especially in city/activity centres
Predominantly in exclusive residential
areas (subdivisions)
Type of unit; mixes Wider variety, mixtures of types Predominantly detached, single-family;
rigid separation of types and price
Cost Sufficient for all incomes.
Example, mixed income
housing
Market fails to provide affordable units
for all incomes
Provide low cost housing as per Malaysia
Government requirement. Normally, with
poor location.
Transportation Orientation Multiple modes Automobile-dominant
Road system and
network pattern
Grid or network of streets Hierarchy of arterials, collectors and
local streets.
Accessibility Interconnectivity encouraged Separation encouraged
Predominant streets Through streets with alleys
encouraged
Cul-de-sac and collectors
Street pavement
widths
Skinny; concept of street ‘diets’ Wide / more excessive than needed for
functionality
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1.4 The 7 Goals of ISUG
On the whole, there are 7 goals of ISUG Approach:-
Goal 1: Promoting urban revitalization and a healthy working land base
by rural preservation and by containing urban areas, channelling
development into existing neighbourhoods and adopting integrated
planning and management approaches.
Goal 2: Incorporating green infrastructure into communities.
Goal 3: Creating compact complete communities by mixing landuses and
using land more efficiently.
Goal 4: Increasing transportation choices through land use.
Goal 5: Creating inclusive neighbourhoods by ensuring that a diversity of
housing types are accessible to a wide range of people of different age
groups, family types and incomes
Goal 6: Maximising the enduring benefits of developments by using
resources wisely on sites and in buildings that are tailored to specific
neighbourhood conditions
Goal 7: Supporting municipal goals through cost recovery by ensuring that
development cost charges and other taxes and fees reflect the true cost
of different types of growth
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Above all, in the long run this approach has the overriding goal of attaining
Sustainable Development. “Sustainable Development is commonly defined
as “Development that meets the needs of the present without compromising
the ability of future generations to meet their own needs.” (Brundtland, 1987)
However, the commitment to meet the needs of present and future
generations has economic, social and environment implications which are
closely interrelated and interwoven to reach sustainability. See Figure 1.1
Figure 1.1 Sustainable Developments
"Meeting the needs of the present" means satisfying:
Economic needs – including access to opportunities for an adequate livelihood
or productive economic activity, also economic security when unemployed, ill,
disabled or otherwise unable to secure a livelihood.
Social, cultural and health needs - including a shelter which is healthy, safe,
affordable and secure, within a neighbourhood with provision for piped water,
drainage, transport, health care, education and child development, and
protection from environmental hazards.
Political needs - including freedom to participate in national and local politics
and in decisions regarding management and development of one's home and
neighbourhood, within a broader framework which ensures respect for civil
and political rights and the implementation of environmental legislation.
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1.4 THE FUNCTIONS OF THE ISUG APPROACH - THE
MALAYSIAN WAY
In order that the ISUG Approach is adopted the main functions of the ISUG or Smart
Growth Approach should be adapted in the Malaysian way and they include:-
- To guide, coordinate and integrate goals, objectives and strategies of National
Planning Policies with those of the existing state and district development plans
which have been gazetted.
- To function as an integrated and holistic approach for the planning,
implementation, controlling, management and monitoring of urban growths in
Peninsular Malaysia so as to achieve an overall sustainable development via new
concepts such as Smart Growth, New Urbanism and Sequential Approach.
- To guide the adoption of a more efficient, effective, responsive and accountable
system and process for the planning, control and management of urban
development and growth;
- To ensure that appropriate and effective techniques and strategies of urban
growth and management are implemented to achieve the desired outcomes.
Meanwhile, other salient features of this approach which are dynamic and should be
incorporated into the present day Malaysian practice are:-
a) Ability to plan for and accommodate anticipated growth in economic activity,
population and housing demand as well as on-going changes in demographics and
lifestyles while protecting the environment.
b) Ability to provide for a wide range of housing types to suit the needs, preferences
and income levels of the community's diverse population.
c) Adoption of a comprehensive landuse planning process at the local level that
specifically identifies strategic landuses and meaningful open spaces.
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d) Identification and sourcing of a reliable means to finance and pay for the
construction and expansion of roads, schools, water and sewer facilities and other
infrastructures required to serve a prosperous community.
e) Using land more efficiently by allowing higher density development and innovative
landuse policies such as encouraging mixed use and pedestrian-friendly
developments with access to open space and mass transit.
f) In revitalizing older suburban and inner-city markets and encouraging infill
development.
1.5 RELEVANT ISUG STRATEGIES TO ADDRESS ISSUES AND
WEAKNESS IN THE PREPARATION OF DEVELOPMENT
PLANS
The identified issues and weaknesses in the present system and process of formulating
development policies and preparing development plans are shown in Table 1.2, as well
as the possible ISUG mechanism that can overcome weaknesses.
Table 1.2: ISUG Strategies to Address the Issues and Weaknesses in the Preparation
of Development Plans
Weaknesses in the
Present System ISUG Strategies
i. Plan preparation process
too long and too costly.
Can be made faster and more efficient by adopting the ISUG
Integrated Planning Management (IPM) Approach, the ISUG
Database Management and Decision Support System (DMDSS),
and the Community Participation and Support (CPS) mechanism.
The ISUG Approach will also take into account macro and micro
plans already prepared but only needs updating. Thus, adopting
the approach will only need the strengthening of existing plans.
ii. Planning problems and
issues not well identified.
The adoption of the ISUG DMDSS and its mechanisms provides
easier and more efficient compilation and analysis of data, more
accurate identification of urban problems and issues, and the
formulation of more effective and responsive proposals.
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Weaknesses in the
Present System ISUG Strategies
The participation of stake-holders from the beginning of the plan
preparation process by the CPS approach will also ensure that
issues are identified in a holistic and in-depth manner.
The ISUG IPM Approach ensures that urban issues and problems
are looked at in an integrated and holistic manner.
iii. Public participation
process not effective.
The ISUG CPS process will ensure more effective participation of
the various stake-holders at all stages of plan preparation.
iv. Development plans not
responsive and effective
The ISUG DMDSS and the adoption of an appropriate set of ISUG
Indicators (ISUGI) will ensure that the proposals and strategies of
development plans are more directly responsive to, and more
effective in solving, the urban problems identified.
The ISUG Development Control Guidelines (DCGs) are more
flexible and allow developers to change their development
proposals in response to social, economic and political changes.
The Transfer of Development Rights (TDR) and Government
Fiscal Incentives (GFI) also provide lee ways for developers to
make their development more feasible.
v. Development plans not
action oriented and not
time specific
The ISUG Sequential Approach ensures that the development
plans are more action-oriented and time specific, as it provides
the time frame for development by various agencies, authorities
and private sector.
The Transit Oriented Development approach ensures that urban
growth and the development of public transport and other
infrastructures are timed together.
vi. Development plan too
rigid or too vague.
The ISUG approach, with its many mechanisms allow for greater
flexibility without sacrificing quality of development. The ISUG
DCGs, like the Performance-Based and Incentive-Based Control
Guidelines and the Planned Unit Development approach provide
flexibility and encourage innovation in development by private
developers.
The Form-Based and Design-Based Control Guidelines, on the
other hand, ensure that development achieve the expected
vision.
vii Planners and decision-
makers not responsible
The ISUG DMDSS and ISUGI, with Strategic Environmental
Assessment (SEA), Environmental Impact Assessment (EIA),
Environmental Management System (EMS), Cost-Benefit
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Weaknesses in the
Present System ISUG Strategies
and not accountable. Assessment (CBA), prepared according to ISUG requirements will
ensure that planners and decision-makers are meticulous and
transparent during the plan-making process and can be
monitored and checked and made responsible and accountable.
Under the ISUG approach all development agencies can be made
accountable for the impact of development.
The ISUG CPS system, where plan preparation can be monitored
by the public and stake-holders, the planners will feel more
responsible.
viii. No development impact
analysis in plan
preparation process
The adoption of the ISUG DMDSS and ISUGI will ensure that
thorough assessment of impacts, risks, costs and benefits of
proposed development will be done before the development
plan is approved.
ix. Lack Coordination and
Integration among
agencies and departments
in planning.
The ISUG IPM approach will ensure that there is adequate
integration and coordination at all stages among the various
agencies and departments involved in the planning process.
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2.0 THE 9 STRATEGIES UNLEASHED
The ISUG Approach combines 9 distinct strategies for the planning, controlling,
implementing, managing and monitoring of urban growth and development. These 9
strategies as depicted in Figure 2.1 should be employed cohesively.
Figure 2.1: The ISUG approach and Its Strategies
The importances of these 9 strategies are explained as below:-
i. The Integrated Planning Management Approach aims towards an integrated
and holistic planning and development.
In general, integrated planning management aims to consolidate all related
group of expertise to achieve ISUG strategies at all government
administrative level (i.e. national, regional and local government) as shown in
Figure 2.2.
INTERGRATED
SUISTAINABLE
URBAN GROWTH
(ISUG)
INTERGRATED PLANNING MANAGEMENT
DEVELOPMENT PROPOSAL REPORT
GOVERNMENT FISCAL INCENTIVES
DEVELOPMENT CHANGES & TRANSFER OF DEVELOPMENT
RIGHT
INCENTIVES PERFOMANCE BASED DEVELOPMENT
CONTROL
ISUG DATABASE DECISION SUPPORT SYSTEM
COMMUNITY PARTICIPATION & SUPPORT
SEQUENTIALN APPROACH
TRANSIT ORIENTED DEVELOPMENT COMPACT
CITIES
URBAN GROWTH BOUNDRARIES & GREEN
RESERVES
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Figure 2.2: Flow Chart of Integrated and Planning Management Approach
ii. Urban Growth Boundaries (UGB) and Green Reserves (GR) is to attain balanced
sustainable development and conservation.
Urban Growth Boundaries (UGBs) in the UK or Urban Containment Boundaries
(UCBs) as they are called in the US acts as a ‘limit’ of urban development and
growth. Its main purpose is to channel future urban development to urban areas
and permanently retain green reserves, rural and country side areas. UGBs
prevent suburban sprawl and encourage orderly development. Refer Figure 2.3.
IMPLEMENTATION METHOD
(Thoroughly & Efficiently)
GOVERNMENT POLICY
APPROACH TO INTEGRATION
Functionality Accountability Organization
RESOURCES
Authorization Pricing Strategic asset Management Community Capacity Building
INSTITUTIONAL ARRANGEMENT
Central Agency Avoid Mismatch Policy
OUTCAMES
Constant Re-evaluation
integration
PUT INTO PRACTISE
TOOLS
Policy making Integrated planning Funding Research & monitoring
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The processes involved in the designation of UGBs in a land use plan are as
shown in Figure 2.3:
Figure 2.3Urban Growth Boundaries Principles
iii. Transit Orientated Development (TOD) and Compact City Development (CCD)
strive for better and more efficient urban living environment.
Transport Oriented Development (TOD) concerns about the requirement to
design viable land use patterns (but most preferable compact patterns), social
integrity, infrastructure spending priorities (fiscal), and environmental
protection. The major goals of the TOD is to increase ridership, promoting
economic development, reducing infrastructure cost and rising revenues for
transit properties and protecting the environment.
iv. Sequential Approach (SQ) helps to prioritize development areas.
The sequential approach may be one of the mechanisms to slow down urban
sprawl and at the same time, ensure that development projects is demand based
and not the supply led as is the case in Malaysia, resulting in the oversupply of
certain types of properties. The Sequential Approach is closely related with the
brownfield development and urban revitalization mechanism such as:
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Involvement of the private sector.
Local authorities should manage the release of sites over the plan period.
v. Sufficient sites should be shown on the local planning authority’s development
plan’s to accommodate at least the first five years (or the first two phases) of
housing and other developments proposed in the plan.
vi. Community Participation and Support (CPS) is for community-responsive
planning and management of urban growth.
Community participation in development process provides a source of special
insight, information, knowledge, and experience gained (may not be seen by
others) through discussion and representative of citizen consensus. Also
participation can legitimize a program, its plans, actions, and leadership.
vii. ISUG Database Management and Decision Support System (ISUGDM and DSS) is
for more effective, transparent and accountable planning, management and
monitoring.
ISUG Database Management System - an integrated database management
system for the collection, compilation, analysis, storage, retrieval, reviewing,
up-dating, communicating and dissemination of information for planning and
management of ISUG.
ISUG Decision Support System - an integrated computerised system to help
in decision-making in urban development planning, control and
management.
ISUG Cost Benefit Assessment – a comprehensive analytical approach for the
assessment of environmental, social and economic impacts and risks of
proposed development in the formulation of plans and in development
control and monitoring.
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viii. Urban Form, Urban Design, Incentive-Based, Performance-Based, Licensing
Control and Other Control Approaches are tools for more effective and
responsive development control.
ix. Development Charges (DC) and Transfer of Development Rights (TDR) are to
promote the right development in the right place and lastly.
Table 2.1: Summary of Urban Form, Urban Design and Incentive Based and the
Approaches for Effective Development Control
No Type Contents Application
1 Urban Form, Urban Design Control Guidelines
Control form, massing, scale, design of new buildings to existing natural features and public spaces; Regulating plans, public space standards, building form standards, environmental resource standards, architectural standards, landscaping standards, signage standards, etc.
Traditional neighbourhood developments, town centres, transit oriented development zones, urban heritage conservation areas.
2 Incentive Based Control Guidelines
Higher densities, plot ratios, increased height, reduced setbacks, car parking, etc.
Can be used to encourage infill developments, TOD and Compact developments; Can be applied with fiscal incentives, transfer of development rights and development charges.
3 Performance based Control Guidelines
Focuses on impact of development, provide flexibility on density and floor space
Can be used to supplement conventional landuse zoning.
4 Planned Unit Development Guidelines
Create a process to bend rigid rules in order to create a better environment.
Town Centre, TOD areas and urban renewal.
5 Licensing Control Guidelines
Control building use and business activities.
Licence control guidelines.
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x. Government Fiscal Incentives are of course to encourage more favourable
developments.
National and State Governments must lend support to the ISUG Approach if the
goals and objectives of sustainable urban planning, development and
management are to be achieved.
Notice that each strategy is symbiotic of the other. No one strategy can stand alone as
to implement one would mean the need for another supporting strategy and actions.
Hence the integrated approach here means that, in order to achieve the desired
outcomes for a more sustainable urban planning and development system all the 9
strategies should be equally emphasised and employed.
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3.0 INCLUSION OF THE ISUG APPROACH INTO THE
MALAYSIAN PLANNING AND DEVELOPMENT
SYSYEM
Suggested inclusion of the strategic policies in the 5 year Malaysia Plan especially in the
NPP and the NUP can be summarized as in Table 3.1 and Table 3.2 below:-
Table 3.1: Incorporation of the ISUG Approach in the National Physical Plan
Existing NPP Provision Recommended ISUG Incorporation
NPP 2
The planning of urban-based economic
activities shall adopt the concept of
‘Selective Concentration’ for strategic
urban centres for all states.
NPP 2
The planning of urban based economic
activities shall adopt the Integrated
Sustainable Urban Growth Approach for all
states.
NPP 12
The individuality and physical separation of
the cities, towns and villages within the
conurbations shall be maintained.
NPP 12
The physical separation of cities and towns
within conurbations shall be maintained
through the adoption and implementation of
the ISUG Approach.
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Table 3.2: The Relevant Strategies of the ISUG Approach to achieve the NUP Thrusts
NUP thrusts ISUG strategies to achieve the thrusts
Thrust 1: An Efficient and
Sustainable Urban
Development
a. Urban Growth Boundaries and Green Reserves b. Transit Oriented Development and Compact City
Development c. Sequential Approach, Brownfield Development,
Town Centre Development and Revitalization d. Integrated Planning Management Approach e. Community Participation and Support for Liveable
Communities f. Development Charges and Transfer of Development
Rights
Thrust 2: Development of
an Urban Economy that is
Resilient, Dynamic and
Competitive;
a. Development Charges and Transfer of Development Rights
b. Integrated Planning Management Approach c. Incentive-Based Control Guidelines d. Government Fiscal Incentives
Thrust 3: An Integrated and
Efficient Public Transport
System;
a. Integrated Planning Management b. Transit Oriented Development and Compact City
Development c. Sequential Approach d. Development Charges and Transfer of Development
Rights
Thrust 4: Provision of
Urban Services,
Infrastructure and Utility of
Quality
a. Integrated Planning Management b. Urban Growth Boundaries c. Sequential Approach d. Development Charges and Transfer of Development
Rights e. Transit Oriented Development and Compact City
Development f. Government Fiscal Incentives g. Incentive-Based Control Guidelines
Thrust 5: Creation of a
Conducive Liveable Urban
a. Urban Growth Boundaries and Green Reserves b. Transit Oriented Development and Compact City
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Environment with Identity
Development c. Sequential Approach for town centre development
and revitalisation d. Form-Based and Design-Based Control Guidelines and
Planned Unit Development Guidelines e. Community Participation and Support in the
Development Process and for Liveable City
Thrust 6: Effective Urban
Governance
a. Integrated Planning Management Approach b. Community Participation and Support in the
Development Process c. Incentive-Based and Performance-Based Control
Guidelines, Licensing Control d. Development Charges and Transfer of Development
Rights
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4.0 IMPLEMENTATION CHALLENGES
4.1 THE 4 IMPLEMENTATION CHALLENGES.
To implement successfully the ISUG Approach, there are 4 major challenges that need
to be tackled by the Malaysian planning and development authorities and they are:-
4.1.1 Strong Political Support.
The political masters at federal, state and local levels must have the sincerity, and
commitment to achieve sustainable urban growth and development. Therefore, this
approach will have to receive not just endorsement by the National Physical Planning
Council but also the Cabinet. Once the Cabinet has endorsed the approach, it shall be
imperative for others to follow, as the Cabinet Instructions are taken very seriously by
all departments and agencies.
4.1.2 Integration and Coordination.
Integration and coordination amongst all related ministries, agencies, departments,
local authorities and utility providers is pertinent for the implementation of the
Approach. Problems of compartmentalisation of government powers and jurisdictions
should be overcome by the ISUG approach which is indeed a cross-department and
cross-agency mechanism.
4.1.3 Capacity Building
There needs to be capacity building at all federal, state and local government levels
especially in the form of monitoring. Capacity building shall be not just in the numbers
of officers involved but also in the skill building, knowledge development and data
management and upgrading. In the light of the One Stop Centre (OSC) approach to
process development applications, the ISUG can be implemented in tandem with the
OSC. When all policies and strategies are in place and applications meet up with the
criteria and requirement of the ISUG, plan processing and decision making shall be
more efficient.
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4.1.4 Stakeholders Involvement and Participation
Community involvement must be supported by the willingness and sincerity of
government agencies to include comments and suggestions from NGO’s, CBO’s and
other stakeholders. It is imperative that there exists private-public sector partnership
for ISUG to be effectively implemented and monitored. Land owners and developers
begin to understand the philosophy, the ultimate goals and objectives of the ISUG and
do not oppose its implementation.
4.2 FURTHER RESEARCHES AND STUDIES
It was suggested by the study team that before The ISUG Approach be adopted and
implemented, further researches and studies are to be carried out on each of the 9
recommended ISUG strategies and mechanisms in order to:-
i. Work out the working details of each of the strategies and mechanisms;
ii. Test the suitability and effectiveness of each strategy or mechanism on different
real-life situations;
iii. Work out how and where each of them can be adopted and implemented in the
present urban planning and management system, organization and procedure,
and alter any of the present system, organisation, procedure or law, wherever
appropriate.
Hence further studies and researches which need to be carried out in the next stage
include:-
4.2.1 The Integrated Planning Management (IPM) Approach
This important approach is a prerequisite for sustainable development, as this calls for
an integrated approach to the planning and management of the various social,
economic and environmental sectors, land use and transport, housing and cost of
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living, work and recreation, risks, costs and benefits of development, short term and
long term, present and future needs and demands.
The concept of “sustainable development” peculiar to the Malaysian context will have
related to our Agenda 21, issues of climate change and global warming. Thus Strategic
Environmental Assessment (SEA), Environmental Impact Assessment (EIA), and
Environmental Management System (EMS), and the ISUG Indicators (ISUGI), will have
to be jointly studied.
Meanwhile, Organization and management (O & M) studies should also be carried out
to look into the integration, cooperation and coordination among the various
government departments, semi-government agencies, government-linked companies,
private agencies, non-government organizations, and other organizations, and the
public.
Also New approaches and methods for development planning, such as the Unitary Plan
System and the Local Development Framework System being adopted and practiced
in UK, should be looked into to determine whether they are improvements to the
present system and whether they can better achieve a more holistic, coordinated,
effective, efficient and transparent system for sustainable urban growth and
development. Amendments to the Town and Country Planning Act, Street, Drainage
and Building Act, Local Government Act, Compulsory Purchase Act and other related
acts may then be necessary.
4.2.2 Urban Growth Boundaries (UGBs), Urban Growth Areas (UGAs) and Green
Reserves (GRs)
Further studies on this strategy should be carried out to work out the precise format
and method of incorporating UGBs, UGAs and GRs in the future review and
amendments of the National Urbanization Policy, the National Physical Plan, approved
structure plans and approved local plans, and in the formulation of new structure plans
and local plans.
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4.2.3 Transit Oriented Development (TOD) and Compact City Development (CCD)
Further research will need the involvement of the Ministry of Transport, The Ministry of
Public Enterprises, The EPU as well as the Public Works Department, in order to work
out the long term strategy for an integrated public transportation plan for all major
cities in the country. This shall not involve just the physical provision but also the long
term planning and management, in line with the NPP and the NUP.
4.2.4 Sequential Approach
Amongst the research that has to be carried out include the following:-
i. The identification of possible areas for the approach to be implemented,
including state and local government lands;
ii. The zoning and development control guidelines such as the density and plot
ratio allowable;
iii. The preparation of more detailed local plans and that are prescriptive and
performance based, with flexible development guidelines;
iv. The readiness of LPAs with data and information systems on the areas and lands
within the city centres that will be identified as priority areas for implementation
of the Sequential Approach.
4.2.5 Community Participation and Support
For more effective public participation and community support, the following need to
be undertaken:-
i. Research and surveys on the community’s perception of government policies
and strategies.
ii. Capacity building of facilitators and moderators at the public participation
events to encourage interaction, communication, ideas, expression by the
community;
iii. Employ other ways and means of getting people at all levels and ages to
participate or provide views and opinions;
iv. The use of other forms of media and other activities for community to interact;
v. Research on use of technology for effective community participation.
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4.2.6 ISUG Database Management and Decision Support System (ISUG-DMDSS)
Further studies are required to work out the details for setting up the components of
the recommended ISUG-DMDSS, i.e.
i. the ISUG Database Management System (ISUG-DMS);
ii. the ISUG Decision Support System (ISUG-DSS);
iii. the ISUG Indicators (ISUGI); and
iv. The ISUG Cost Benefit Assessment (ISUG-CBA).
Common electronic formats for the entering, compilation, analysis, storage, retrieval,
dissemination, presentation, and up-dating of all relevant data from the various
departments and agencies are to be established.
The DTCP should also establish the formats and manuals for the ISUG Strategic
Environmental Assessments (SEA), Environmental Impact Assessments (EIA), and the
Environmental Management System (EMS) and Cost-Benefit Assessment for
development planning, development control and development management.
A complete set of ISUG Indicators for the assessment of environmental impacts and for
ISUG Cost-Benefit Assessment and risk assessment of proposed development will be
needed. The ISUG indicators should include:
- Geotechnical and land resources: land stability, land slide, soil settlement, erosion,
flooding, land availability, land suitability;
- Ecological: fauna and flora, natural biodiversity, forests and wetlands, rivers,
marine resources;
- Food production: agriculture, fishing, aquaculture;
- Climate: Climate change, global warming, carbon emission, green house gases,
trees and vegetation;
- Air quality: air pollution, air qualité index, noise pollution ;
- Water quality: water pollution, water quality index;
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- Public utilities: supply, demand and costs of water, electricity, sewerage,
telecommunication, waste management services;
- Economy and Income: employment, income, costs of living;
- Traffic and Transport: traffic impact, public transport, cost of traveling;
- Housing and living environment: housing demand and supply, costs of housing,
clean neighborhood environment, safe, bicycle lanes, foot paths;
- Community facilities and services: facilities for recreation, schools, no of teachers,
health clinics and hospitals, no of doctors, police stations, no of policemen, shops;
- Social: sense of place, sense of belonging, sense of community, sense of security;
- Cultural: traditional practices, religious facilities, heritage, spiritual pursuits;
- Design and Aesthetic: protection of vistas, urban design, arts, public realm design.
The electronic dissemination of planning information to the public along the line of
the JPBD Land use Planning Portal is envisaged, as well as the setting up of permanent
planning information centres and “operation rooms” in all departments and local
planning authorities and for the National Physical Planning Council and the State
Planning Committees.
4.2.7 Urban Form, Urban Design, Incentive-Based, Performance-Based, Licensing
Control and Other Control Approaches
Further studies to look into the details and suitability of the various alternative
development control approaches should be carried out.
The work should also look into the formulation of the various components of the
control guidelines, such as the regulating plan, public space standards, building form
standards, environmental resource standards, and architectural standards, landscaping
standards, signage standards, incentive criteria and performance criteria for guiding
new development.
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4.2.8 Development Charges and Transfer of Development Rights
i. Development Charges
It is crucial that the Rules for Development Charges be prepared and adopted for all
local planning authority areas, especially those that have local plans. The rules should
specify the rates and method of calculation of development charges. The steps to be
taken include:-
Determine the base land / building use, density and plot ratio entitlement of
various locations within the Urban Growth Areas,
Carry out a Land Valuation Exercise for the Urban Growth Areas, to determine the
“Base Land Values” of the various locations,
Create the formula and rate for calculating DCs,
Draft and Prescribe the Development Charge Rules,
Establish an administrative system of imposing DCs by LPAs.
ii. Transfer of Development Rights
The further studies to be done should look into the requirement and suitability of the
Transfer of Development Rights in the plan area. The steps to be taken to establish the
system in the plan area include:-
Identify the “Sending Areas” and the “Receiving Areas”,
Carry out a Real Estate Market Analysis (REMA),
Determine the “Base Development Rights” of these areas,
Create a Formula for Calculating “Development Rights Values” or “Credits” in
these areas,
Drafting the Rules,
Establish administrative procedures and setting up a TDR Register.
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4.2.9 Government Fiscal Incentives
The following are some examples of areas in which fiscal incentives need to be further
researched upon:-
i. Incentives that will encourage the development of more affordable housing in the
city especially within transit planning zones;
ii. Incentives to encourage the setting up of more colleges and universities within the
CBD and around transit nodes;
iii. Incentives that will encourage people to leave their private vehicles and use the
public transportation systems;
iv. Incentives to encourage small and medium scale services to locate in the city;
Incentives that will encourage more corporations to adopt and beautify the city’s
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5.0 CONCLUSION
As a conclusion it was found that Sequential Approach by itself will not be an adequate
tool to manage urban issues. Hence, an integrated approach is needed more than one
strategic mechanism or tool will be applied to render its adoption in the Malaysia
context.
The ISUG contains comprehensive mechanism from planning, design, management,
community inclusion and fiscal strategies that will be required for a holistic urban
management approach. It thus recommended that this approach be adopted into the
Malaysian Planning and Development system.
Indeed, to ensure effective implementation of the ISUG Approach in Malaysia, further
researches and studies on the 9 interrelated Mechanisms and Strategies need to be
pursued .The effect and impact of these multi-dimensional instruments will
consequently attain the ultimate goal of Sustainability and henceforth Sustainable
Development for Malaysian Urbanisation and Urban Growth.