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THE FEASIBILITY OF SEQUENTIAL APPROACH IN THE DEVELOPMENT PLAN SYSTEM OF MALAYSIA JABATAN PERANCANGAN BANDAR DAN DESA SEMENANJUNG MALAYSIA KEMENTERIAN PERUMAHAN DAN KERAJAAN TEMPATAN a monograf

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Page 1: Monograf Sequential Approach

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

Page 2: Monograf Sequential Approach

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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THE SEQUENTIAL APPROACH -A MONOGRAPH

FEDERAL DEPARTMENT TOWN AND COUNTRY PLANNING PENINSULAR MALAYSIA 1 | P a g e

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.