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CHAPTER 1 BACKGROUND OF STUDY, AIMS AND SCOPE OF WORK OF STUDY
CHAPTER 2 THE SEQUENTIAL APPROACH
CHAPTER 3 THE MALAYSIAN URBAN SCENARIO
CHAPTER 4 PRELIMINARY PERCEPTION SURVEY : SEREMBAN AND GEORGE TOWN
CHAPTER 5 PLANNING PROCESS AND LAND MATTERS
CHAPTER 6 SEQUENTIAL APPROACH AND POSSIBLE INCORPORATION INTO THE MALAYSIAN PLANNING AND DEVELOPMENT SYSTEM
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Prepared by :
In association with MR. TAN THEAN SIEW DR. JAMALLULLAILI ABDULLAH (University Teknologi Mara) PN. FAHARIAH WAHAB (Henry Butcher Pty. Ltd)
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F I N A L
R E P O R T
up 1.1 A
INTRODUCTION AND BACKGROUND Study
commissioned
by
the
with
the
objectives
of
sustainable
development.
Federal
The Study focused on the feasibility of the
Department of Town and Country Planning
Sequential
Peninsular Malaysia in July
2007 on the
adoption
feasibility
adapting
Development System. The Sequential Approach
of
adopting
and
“Sequential Approach“
the
Approach into
the
and
its
Malaysian
application Planning
/
and
was a management tool used in the United
in planning and
Kingdom since 1996 to control and monitor
development in the country, has resulted in an
development, such that new developments will
expanded look at new approaches in the
not encroach further and further into prime
management of urban growth.
This was
agricultural or environmentally sensitive areas.
undertaken after detailed analysis was made,
The Sequential Approach was also used to
based on data on property, market and
control the supply of commercial floor space
development trends in the designated study
within urban areas such that property overhang in
areas, as well as examining the issues of urban
that sector will not occur as what happened
planning and development system in meeting
during the recession of 1987-1990’s.
1-1
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F I N A L
R E P O R T
However, in addressing the whole spectrum of
1.2
THE GOAL AND SCOPE OF WORKS
1.2.1
Goal of Study
urban planning and management, the study team also looked at an alternative urban management approach that has been applied
The goal of the study was to present
mainly in the United States. This alternative
the findings on the Feasibility of the
approach
Sequential
was
examined
in
light
of
the
Approach
in
the
legislation, existing guidelines and governance
development plan system (Structure
in Malaysia.
Plans
The mechanisms, goals and
and
Local
Plans)
and
the
objectives of both approaches were further
planning process, with the aim of
examined with the intention of formulating what
assisting local planning authorities and
is best to address the urban issues in Malaysia.
the State authority in making decisions on development.
This Final Draft report is prepared in two volumes.
The first is on the findings of the
1.2.2 Objectives
sequential Approach and the feasibility of
The
objectives
adopting the technology in managing urban
outlined as:
growth in Malaysia.
The second volume is a
a. To study on the understanding of the
report that outlines the alternative approach,
“Sequential Approach� , its meaning
and the final recommendations for the planning
and approach as well as suitability in
and management of urban development in
the land use planning system and
Peninsular Malaysia.
implementation in Malaysia; b. Research
of
on
the
the
research
best
was
planning
practices in the country as well as internationally,
and
identifying
the
weaknesses and strengths if they are to be
implemented
in
the
land
use
planning system in Malaysia; c. Undertake
an
analysis
and
rationalization based on the findings and
statistical
projections
if
the
Approach is to be implemented in the country;
1-2
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F I N A L
d. Make
recommendations
on
R E P O R T
the
to urban growth management.
As part of the
policies and development strategies
original requirement of the Study, the Team also
in using the Sequential Approach to
undertook the collection of primary data in the
address urban issues that affect
form of a survey of people involved in the
land use, economics , social and
formulation of development plans, in the planning
environment;
approval process as well as those involved in the decision
making
of
the
development
applications. Stage 1 involved a comprehensive technical evaluation of the Sequential Approach and the Smart Growth Approach. This included extensive e. Recommend
and
research and literature review as well as data
suggest
collection via primary and secondary collection
improvements in the existing system if Sequential adopted
Approach in
Peninsular
is
to
of the selected cities under study.
be
and understanding the potentials, constraints and
Malaysia,
major issues related to the two approaches in
through the development plan and
terms of possible adoption and implementation
planning process for use by State
were incorporated.
and Local authorities. f.
At stage 2, the initial findings were tabled and
However, as mentioned above, the
early recommendations made. A SWOT analysis
study goals were altered by the
of the Sequential Approach was undertaken to
consultants in the midst of the study
determine the strengths, opportunities, Threats
such that it focused on the best planning
and
and Weaknesses. An analysis of the study areas,
management
namely George Town and Seremban were made,
approach that could be adopted
and an opinion survey was undertaken of the
for use in the country. This is in order
stakeholders
that the urban issues in Malaysia,
involved
in
plan
processing and decision making.
which will be outlined below, will be
proposal
comprehensively addressed.
was
technical, 1.3
The analysis
forwarded legislative,
that
making,
plan
A preliminary included
procedural
the and
organizational elements. The preliminary report
WORK UNDERTAKEN
also indicated where possible implementation can be made.
The Study team undertook extensive research on secondary sources on the two approaches 1-3
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F I N A L
R E P O R T
1.3.2
The Interim Report
The Draft Final Report is the third stage which is the formulation of the Strategic Proposals and
The interim report further explored the
recommendations based on the findings and
issue of urban land delineation as well as
identification made in Stage 2. This report shall
categorization of urban boundaries by
be detailed and shall focus on implementation
types of centres and their definition. The
issues
current
such
as
agencies
to
implement,
urban
issues
in
the
country,
pertaining
to
sprawl
investment opportunities and mechanisms to
especially
were
implement including statutory regulations and
outlined and this was evidenced by data
requirements.
and previous studies undertaken in both Johor Bharu and Kuala Lumpur. This report
Three reports have been produced prior to this
also introduced and elaborated on the
one. In order that the draft final report is fully
concept of smart growth besides that of
understood,
the Sequential Approach.
the
contents
of
the
previous
submitted reports shall be outlined so that all facts and study elements are well covered. 1.3.1
The Inception Report The Inception report studied in detail the Sequential Approach as required out of the study being commissioned.
The
concept of the Sequential Approach, the legislative provision, its application and mechanism, and its impact were all outlined so that the clients and potential stakeholders would fully understand and
The Interim Report also looked at current
comprehend the Approach.
Malaysian
policies,
legislation
and
guidelines that prevail upon the subject of The Inception report also outlined issues
urban growth and management. Issues of
with
land
the
identification
boundaries George
and
Town
used and
the
of
urban cities
Seremban
development
and
the
planning
of
process were outlined, and the results of
as
the perception survey undertaken on
examples.
stakeholders in Seremban and George Town were also tabled.
1-4
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F I N A L
1.3.3
R E P O R T
The Technical Report
Finally the Technical Report presented in detail an alternative approach that was
The Technical Report presented the
worth exploring.
The detailed concept,
analysis and inferences from the Interim
objectives and mechanisms were tabled.
report findings. This included analyzing Planning
the
current
Legislation
Development
and
Planning
System. A SWOT analysis was also
undertaken
Sequential
on
Approach
the to
prove the fact that the Approach
will
not
be
sufficient to address urban planning and management issues
in
Malaysia.
criteria required
and
The the
prospects of the Approach were also outlined.
The
report
combined
made
recommendations on
approach
that
included
a the
Sequential Approach as one of the mechanisms of the Smart Growth concept. This combined approach has been given a new terminology, namely
“INTEGRATED
SUSTAINABLE
URBAN
GROWTH� (ISUG) Approach. Its strategic tools and mechanisms, criteria and implementation mechanism,
as
well
as
the
possible
incorporation of the ISUG into the Malaysian Planning
and
Development
mooted.
1-5
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System
were
F I N A L
R E P O R T
The three reports and a summary of their contents are as follows: REPORT STAGES
CONTENTS
Inception
The Goals of the Study; Objectives and current issues;
Report
The Scope and Methodology, definitions of the concept, policy, laws and procedures pertaining to implementation, a Study on existing mechanisms and improvement;
Interim report
Methodology, output and deliverables, and data and information needs.
Defining and delineating city boundaries; delineation of urban boundaries in national policies;
Problem Statement and Issues – urbanization and urban sprawl and sustainable development;
International Urban Development Policies and Practices – a literature review; The Sequential Approach, Smart Growth;
National Policies, Strategies & Legislative provisions – the national physical plan, The National Urbanization Policy, 5 –year Malaysia Plans, The Town & Country Planning Act, The National Land Code, Uniform Building Bye-Laws, Strata Titles Act, Local Government Act;
Planning Process and Land matters – Development Planning, Development Comtrol, Plan Implementation and Monitoring;
Urban Development, Property and Market Trends – the trend in George Town and Seremban, Overview of the property markets;
Technical
The preliminary perception survey of Seremban and George Town.
Analysis and Inferences from the Interim Report Findings – the planning legislation
Report
and the development plan system, the land development system, urban growth trends and sustainability, and urbanization trends of study areas;
Strengths, Weaknesses, Opportunities and Threats Analysis – the criteria required and prospects of sequential approach;
The alternate approach – smart growth, criteria required and the Malaysian experience and context;
The recommended approach – the Integrated Sustainable Urban Growth Approach – key goals and objectives, strategic tools and mechanisms, and criteria for implementation
The incorporation of the ISUG approach into the Malaysian Development Plan System
1-6
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F I N A L
R E P O R T
Volume 1 of this Draft Final Report focuses on the Sequential
Approach,
the
technical
provision
and
practiced
in the
United
legislative
and
implementation, Kingdom
as
where
it
originated from. The flow chart shown in Fig. 1.1 provides an overview of the approach taken in the study in order
to
examine
the
applicability
of
the
Sequential Approach to the Malaysian Planning and Development System.
As the Sequential
Approach was developed to address an Urban problem in the U.K., the Malaysian Urban issues and problems were examined. Studies that have been previously undertaken are quoted herein, and a survey has been undertaken also on the property
markets
and
trends
within
the
designated urban areas of Georgetown and Seremban. current
This is to gauge not only on the
urban
issues
but
also
to
test
the
application of the Sequential Approach into the Malaysian urban context. Reference is also made to the Brownfield Study, undertaken by the JPBD.
1-7
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F I N A L
Figure 1.1
R E P O R T
Sequential Approach Study Flow Chart
What is Sequential Approach -
Defining Urban Centres
Study of Johore Bharu and Klang Valley
definitions mechanisms requirements
The Malaysian Urban Scenario & Development Issues
Urban Sprawl
Property Scenario
Survey of Georgetown & Seremban
1-8
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F I N A L
2.1
R E P O R T
INTRODUCTION
the Regions, on Town Centres and Retail Developments, and then followed by PPG 3, on
The Sequential Approach to Planning can be summed
up
as
a
technique
Housing, in 2002.
towards
sustainable development. It is a method of
The Principles of the Sequential Approach have
monitoring physical development and in the
been described in the Planning Policy Guidelines
planning system and process, ensures that
(PPG) of the Department of the Environment,
physical
Transport and the Regions, United Kingdom, in
development
demand.
meets
up
with
The approach also ensures that
“brownfield” developed
sites
as
well
as
sites,
be
given
particular PPG No.6.
previously priority
for
PPG No.6 (June 1996) relates to Planning
development, over “greenfield” areas. In this
guidelines
for
way, urban sprawl is minimized, there is no
developments, in which emphasis has been
oversupply in development products (housing
given to a plan-led approach to promoting
or commercial floor space), and existing
retail, leisure and employment development. It
infrastructures are fully utilized.
establishes
a
Town
Centres
Sequential
and
Approach
Retail
…”with
preferance to Town Centre locations, then The Sequential Approach in planning and
edge-of-town centre and finally out-of-town
development has been in practice in the UK
centre.
since
1996
Guidance
through (PPG)
the No.6
Planning issued
Policy
by
the
This has been followed by PPG 3 (March 2002),
Department of Environment, Transport and
which is a guideline on Housing. 2-1
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PPG 3
F I N A L
R E P O R T
encourages “new housing to be provided in
2.2
such a way as to promote sustainable forms of development, making the most efficient
As mentioned above, the enabling legislation in
use of previously developed land. This is to be
achieved
concentrating
by
amongst
most
other
additional
the UK is the Town and Country Planning Act
things,
1990
housing
use
of
“brownfield”
sites
and
(as
amended
by
the
Planning
and
Compensation Act 1991). Section 54 (A) of the
development within urban areas; maximising the
ENABLING LEGISLATION –PLANNING POLICY GUIDELINES (PPG), ENGLAND AND WALES.
Act states that :
the
conversion/re-use of existing buildings; and,
“Where, in making any determination under the planning Acts, regard is to be had to the development plan, the determination shall be made in accordance with the plan unless material considerations indicate other wise.”
securing minimum development densities of between 30-50 dwellings per hectare.”
Brownfields are abandoned or under-used industrial and commercial facilities where expansion or redevelopment is complicated by real or perceived environmental contaminations.
Planning Policy Guidance (PPG) notes set out the Government’s policies on different aspects of planning. They should be taken into account by regional planning bodies and local planning
In city planning, brownfield land (or simply a brownfield) is land previously used for industrial purposes or certain commercial uses that may be contaminated by low concentrations of hazardous waste or pollution and has the potential to be reused once it is cleaned up. Land that is more severely contaminated and has high concentrations of hazardous waste or pollution, such as a Superfund or hazardous waste site, does not fall under the brownfield classification.
authorities
in
preparing
regional
planning
guidance and development plans and may also be material to decisions on individual planning applications
and
appeals.
This
guidance
introduces a new approach to planning for housing which, for most authorities, will mean that their development plan will require early review and alteration in respect of housing.
In the United Kingdom and Australia, the term applies merely to previously used land.
PPG 3 outlines the Sequential Approach in clause 1.8 and 1.11 as follows: 1.8
Greenfield land is a term used to describe a piece of undeveloped land, either currently used for agriculture or just left to nature. In contrast, brownfield land is an area that has previously been developed, such as a paved lot or the site of a demolished building.
The
Government
wishes
local
planning authorities to take a positive approach, in partnership with
the
identifying
private
additional
retail development.
2-2
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sector, sites
in for
F I N A L
1.11
Adopting
a
approach
R E P O R T
sequential
means
that
Statements of Government policy contained in
first
NPPGs and Circulars may, so far as relevant, be
preference should be for town
material
centre sites, where suitable
account in development plan preparation and
sites or buildings suitable for
development control.
conversion followed
are
by
considerations
to
be
taken
into
available,
edge-of-centre
This National Planning Policy Guideline (NPPG 8)
sites, district and local centres
sets out the Government’s policy for town
and only then out-of-centre
centres
sites
are
addresses other non-retailing uses which have a
accessible by a choice of
role in contributing to the economic health and
means of transport.
enhancement of the town centre. The NPPG8
in
locations
that
and
retail
developments.
It
also
defines the factors that the Secretary of State In Scotland, a system of National Policy
will have in mind when considering policies and
Guidelines (NPPGs), Circulars and Planning
development proposals that come before him.
Advice Notes (PANs), are used in Town and
Planning authorities are expected to take its
Country Planning.
contents
The
differences
into
account
in
preparing
their
development plans and in undertaking their
in
development control responsibilities.
these are listed as follows:
The
advice
on
sequential
approach
is
mentioned in section 12 of these guidance:
National Planning Policy Guidelines (NPPGs)
provide
Government important
statements
policy
land
on
use
of
“12. Planning Authorities and developers should adopt a sequential approach to selecting sites for new retail, commercial leisure developments and other key town centre uses. First preference should be for town centre sites, where sites or buildings suitable for conversion are available, followed by edge of centre sites, and only then out of centre sites in locations that are, or can be made easily accessible by a choice of means of transport.”
nationally
and
other
planning matters, supported where appropriate
by
a
locational
framework.
Circulars,
which
also
provide
statements of Government policy, contain
guidance
on
policy
implementation through legislative or procedural change.
Planning Advice Notes (PANs) provide advice on good practice and other relevant information.
2-3
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F I N A L
2.3
R E P O R T
OBJECTIVES OF SEQUENTIAL APPROACH
to take advantage of the changes in retailing and leisure, and to ensure that
The NPPG 8 Town Centres and Retailing
most people, including the disabled, have
document
access to them. Promotion of and greater
has
outlined
the
following
objectives and commitment:
reliance on public transport will form part of this approach. Furthermore, concern
i.
Shopping
is
an
essential part of life for most people in Scotland,
serving
both their everyday needs,
and
providing
more
specialist goods. It also has important links to tourism and leisure
activities.
Retailing is in turn an important economic
about environmental change has resulted
activity in the service sector, providing
in challenging global, international and
over 214,000 full and part-time jobs in
national commitments, while protection
Scotland as well as economic benefits
and improvement of the natural and built
to
environment continues to be a priority at a
both
the
local
and
national
economies. ii.
domestic and international level.
The Government has put sustainable development
at
the
heart
of
iii.
its
Having regard to these wider objectives, the Government has adopted planning
domestic and international policies. It
policies
takes
development
the
view
that
it
embraces
which
promote by
sustainable
supporting
the
economic growth and social progress
regeneration of urban areas, particularly
as well as concern for the environment.
town centres, reuse previously developed
This is reflected in the Government’s
sites, protect green belt or countryside.
commitment to promoting economic
Moreover,
activity
favourable
transport policy, the Government expects
economic conditions for the market to
development to be located where there is
exploit. As part of its policies related to
better access by public transport, walking
welfare to work and overcoming social
and cycling and less dependence on
exclusion, it wants as many as possible
access by car. It attaches importance to
by
establishing
as
part
2-4
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of
its
integrated
F I N A L
R E P O R T
air quality and recognizes that traffic is
with sustainable development and, in
the dominant source of pollution in
particular, that new developments are
urban areas.
located where there are good public transport services, and better access
iv.
Government
policy
gives
particular
for those walking and cycling, leading
weight to the environmental quality of
to less dependence on access by car.
our cities and towns, and is strongly of the view that the economic and social
vi.
The
Government
committed
to
consequences of urban decay are
protecting and enhancing the vitality and
unacceptable. The quality of the urban
viability of town centres. They offer a
environment
range,
and
urban
life
should
quality
and
convenience
of
encourage people to want to live and
services and activities that are attractive
work
not only to the local population and visitors
there.
The
Government
is
committed to land use policies which
but
ensure
pressures,
that
retailing
and
major
also
to
investors.
they
retain
Despite
recent
many
natural
commercial leisure developments are
advantages for shopping, leisure
suitably located and designed, and
employment. Shops in particular make an
provide a catalyst for economic, social,
important contribution to their character.
and environmental benefits for the community at large. v.
is
Accordingly, the Government’s broad policy objectives are: to sustain and enhance the vitality, viability and design quality of town centres, as the most appropriate location
for
retailing
and
other
related activities ; to
maintain
an
efficient,
competitive and innovative retail sector offering consumer choice, consistent
with
the
overall
commitment to town centres; and to ensure that ways of meeting these objectives are compatible
2-5
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and
F I N A L
Town centres have a
R E P O R T
key role in
contributing to the quality of life in
From
urban areas and provide an important
objectives of the Sequential Approach to
focus in rural areas, allowing both urban
Planning
and rural communities to benefit from
summarized as follows:
competition
between
retailers
the
above and
documentation,
Development
can
the be
and
types of retailing. Sustaining their vitality
a.
To achieve sustainable development
and viability depends on continuing
in reducing the growth or expansion
investment
of cities into valuable greenfield
in
new
schemes
and
refurbishments and a positive and a proactive
approach
by
areas;
planning
b.
To maximize land use within existing
authorities, in partnership with other
city or urban centres by developing
public sector agencies and the private
on previously developed lands, or
sector,
brownfield sites;
in
the
development
identification of
and
suitable
sites.
c.
To retain the city core as the most
Furthermore, a range of uses other than
vibrant
shopping should be encouraged to
maximizing on the use of public
locate within the town centre, including
transport and other amenities;
commercial leisure developments.
d.
commercial
centre,
thus
To bring back people into the inner cities to make city centres vibrant,
vii.
Protecting and enhancing town centres
social places where people can live,
is therefore a key consideration which
work and play.
underpins
Government
considering
whether
policy. there
is
In
e.
a
To integrate land use planning and transport by reducing the need to
requirement for additional retail and
travel
other
accessibility to jobs, services and
developments,
planning
authorities are expected to reflect the
and
facilities.
primacy of town centres and promote comprehensive policies and proposals for
sustaining
them,
both
through
development plans and development control decisions. In support of this policy,
planning
adopt
a
authorities
sequential
should
approach
to
selecting sites for new development, with first preference always being given to development opportunities in town centres.
2-6
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promote
increased
F I N A L
2.4
R E P O R T
HOW IT WORKS
local plans, to follow a search sequence, starting with the re-use of previously developed
PPG 3 describes clearly the process of using
land and buildings within urban areas identified
the sequential approach in the housing
by their urban housing capacity study, then
sector. However, a similar approach can be
urban extensions, and finally new development
applied to retail, private institutional or any
around nodes in good public transport corridors.
other development that is associated with the provision of services for a vibrant town
PPG3 also emphasizes that local plans should:
centre. PPG 3 describes the steps necessary
ďƒŹ include policies for the release of sites for
from the identification of areas and sites to
housing and make allowance for previously
allocating
developed windfalls; and
and
releasing
land
for
development.
ďƒŹ be kept up to date, reflect national policy guidance and be underpinned by effective
PPG3 requires local planning authorities, in
monitoring.
identifying sites to be allocated for housing in
2-7
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F I N A L
a.
R E P O R T
Identifying areas and sites
development and the sequence in which development should take place.
RPG
(Regional
Planning
Guidance)
and
development plans should provide clear guidance
as
development
to
the
so
location
that
it
of
meets
new
housing
requirements in the most sustainable way:
at the regional level, RPG should identify the major areas of growth in
the
region,
and
determine
where housing provision is to be sought by structure plan/UDP area, taking
account
of
assessed
capacity;
at the strategic planning level, structure
plans/Unitary
Development Plans (UDP’s) should identify
growth
distribution
areas
of
the
and
a
additional
housing likely to be required to district level; and
at the local level, local plans and Unitary Development Plans should identify
sites
for
housing
and
buildings for conversion and re-use sufficient
to
requirements allowance
meet after
for
housing
making
windfalls
an and
manage the release of land over the plan period.
In identifying sites to be allocated for housing in local plans and UDPs, local planning authorities
Local
planning
development
authorities
the re-use of previously-developed land and buildings within urban areas identified by the
development potential of sites, and the
urban housing capacity study, then urban
redevelopment potential of existing buildings,
extensions, and finally new development around
deciding which are most suitable for housing
nodes in good public transport corridors. They
to
adopt
should follow a search sequence, starting with
the
approach
should
preparing a
systematic
plans
in
assessing
2-8
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F I N A L
R E P O R T
should seek only to identify sufficient land to meet the housing requirement set as a result
the ability to build communities to
of the RPG and strategic planning processes.
support
new
physical
and
social
In doing so they do not need to consider all
infrastructure and to provide sufficient
the land in their area: they should not extend
demand to sustain appropriate local
the search further than required to provide
services and facilities; and
sufficient capacity to meet the agreed housing requirement.
the
physical
and
environmental
constraints on development of land, In deciding which sites to allocate for housing
including, for example, the level of
in local plans and Unitary Development Plans,
contamination, stability and flood risk,
local planning authorities should assess their
taking into account that such risk may
potential and suitability for development
increase
against each of the following criteria:
change.
the
availability
as
of
previously-developed sites and empty or underused buildings and their suitability for housing use;
the
location
and
accessibility of potential development
sites
to
jobs, shops and services by modes other than the car, and the potential for improving
such
accessibility;
the
capacity
of
existing
and
potential infrastructure, including public
transport,
water
and
sewerage, other utilities and social infrastructure (such as schools and hospitals)
to
development
absorb and
the
further cost
of
adding further infrastructure;
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a
result
of
climate
F I N A L
2.5
R E P O R T
ALLOCATING AND RELEASING LAND
development in accordance with the set criteria
FOR DEVELOPMENT
and assumptions.
In determining the order in which sites
Sufficient sites should be shown on the plan’s
identified in accordance with the criteria set
proposals map to accommodate at least the
out , the presumption will be that previously-
first five years (or the first two phases) of housing
developed sites (or buildings for re-use or
development
conversion) should be developed before
allocations should be reviewed and updated as
greenfield sites. The exception to this principle
the plan is reviewed and rolled forward at least
proposed
in
the
plan.
Site
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
plans
and
Unitary
Development Plans should include policies for the release of sites for housing development according to the order of priority set out in the first sentence of paragraph. This should take account of the likely supply
of
authorities
windfall should
sites. manage
Local the
every five years. Local planning authorities
release of sites over the plan period in order
should monitor closely the uptake of both
to control the pattern and speed of urban
previously-developed and greenfield sites and
growth, ensure that the new infrastructure is
should be prepared to alter or revise their plan
coordinated with new housing development
policies in the light of that monitoring. However,
and deliver the local authority’s recycling
it
target. It is for each local planning authority
is
essential
that
the
operation
of
the
development process is not prejudiced by
to determine the form of such phasing
unreal expectations of the developability of
policies but good practice guidance will be
particular
issued. One possible approach to managing
sites
nor
by
planning
authorities
seeking to prioritise development sites in an
the release of land for housing is to divide the
arbitrary manner.
plan into three phases, allocating sites for
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F I N A L
2.6
R E P O R T
THE PROCESS UNDER SCOTLAND’S NPPG8
networks for walking and cycling and regular and frequent public transport services.
Only if it can be demonstrated that all town centre
options
have
been
thoroughly
The
addressed and a view taken on availability,
principles
underlying
the
sequential
approach apply also to proposals to expand, or
should less central sites in out-of-centre
change
locations be considered for key town centre
the
use
of
existing
out-of-centre
developments, where the proposals are of such
uses. Where development proposals in such
a size or type that they would result in a change
locations fall out with the development plan
to
framework, it is for developers to demonstrate
their
character
as
determined
by
the
development plan.
that town centre and edge-of-centre options
2.7 During
Assessing new development applications the
investments
1980s in
and
town
1990s
there
were
centres,
but
more
significantly there was also growth in new forms of retail and commercial leisure developments with traditional centres, such as food superstores and retail parks. Cities and most towns in Scotland are now served by a range of recent major developments and others approved or under
construction,
often
in
out-of-centre
locations. Where Planning Authorities consider there to be a requirement for further new developments or the expansion of existing have been thoroughly assessed. Even where
developments, development plan policies and
a
sequential
proposals should indicate the location, scale of
approach, demonstrates an out-of-centre
additional floor space and type of development
location to be the most appropriate, the
appropriate. Such policies or proposals should
impact on the vitality and viability of existing
be consistent with the general policies in this
centres
be
NPPG. Accordingly, applications for further new,
acceptable. Furthermore, the development
or expansions to existing, major retail and
should be easily accessible by a choice of
commercial leisure developments, should initially
means of transport and not be dependent
be assessed as to whether they are consistent
on access solely or mainly by car. The
with the development plan. Where there is
majority of customers and staff in the forecast
considered to be no requirement for further
catchment
developments, additional sites should not be
developer,
still
as
has
area
part
to
of
be
should
a
shown
be
to
served
by
identified in the development plan.
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F I N A L
R E P O R T
d.
tackle
deficiencies
in
qualitative
or
Where a proposed development is not
quantitative terms which cannot be met
consistent with the development plan, it is for
in or at the edge of the town centre;
the
developer
to
demonstrate
why
an
exception to policy should be made. Such
e.
Not run counter to the Government’s
proposals should be rigorously assessed by
integrated transport policy. Locations for
the planning authority against the policies set
major growth and travel generating uses,
out in this NPPG and should be refused if all
including retail and commercial leisure
the following considerations cannot be met.
developments, should be easily and
The proposed development should :-
safely accessible by a choice of means of transport providing a network of
a.
Satisfy the sequential approach;
walking,
cycle
and
public
transport
routes, which link with the forecast b.
Not affect adversely, either on its own
catchment population, in addition to the
or in association with other built or
car. Consideration should be given to
approved
the
whether the development would have
development plan strategy in support
an effect on travel patterns, car use and
of the town centre, taking account of
air pollution ;
progress
developments,
being
implementation,
made
on
including
its
through
f.
public and private investment;
Be, or able to be made, easily accessible by
existing
convenient c.
regular, public
frequent
transport
and
services.
Be capable of co-existing with the
Such services should be available from
town centre without individually or
the time of opening of the development
cumulatively undermining its vitality
and, where possible, improved over its
and viability, if necessary supported by planning conditions limiting, for example, floorspace or the range of goods sold or the level of car parking; and should not lead to changes to the
quality,
character
of
attractiveness the
town
and centre,
affecting the range and types of shops and services that the town centre would be able to provide, or undermine leisure, entertainment and the evening economy;
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F I N A L
R E P O R T
life. Planning agreements may be used to secure such accessibility in
j.
not affect adversely local amenity; and:
k.
not
appropriate circumstances; g.
Address at the developer’s expense
lead
to
other
significant
environmental effects.
the consequences to the trunk and local road networks of the generated
As with new developments, the expansion of
and redistributed traffic resulting from
existing developments should be judged against
the development proposal. In certain
the Government’s objectives of sustaining and
circumstances
the
impact may not be restricted to junctions and
road
lengths
adjacent
to
the
development; h.
result
in
standard
a of
high design,
ensuring the built form, scale, materials and colour
contribute
positively to the overall environmental quality
enhancing existing town centres. Unless the
and attractiveness of the urban area,
proposed expansion accords with the strategy
and should not, for example, result in
set out in the development plan which provides
sporadic and isolated development,
for further development, it should be assessed
especially along major road corridors; i.
against the considerations in paragraph 45 above.
not threaten or conflict with other
The
presence
would be inconsistent with the development
good quality industrial or business
plan and/or the policy principles in the NPPG
sites; or where priority is being given to the reuse of vacant or derelict land, the development should, in all other location
for
an
appropriate
the
proposed
established
or provide the justification where such expansion
belt, urban regeneration, the loss of
provide
an
development should not in itself set a precedent
important policy objectives e.g. green
respects,
of
development;
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F I N A L
R E P O R T
Figure 2.1: Methodology of Using Sequential Approach To Planning And Development
IDENTIFY SEQUENCE OF PRIORITY AREAS LOCAL PLAN -
-
-
Identification of sites for buildings for conversion + re-use Land availability Future housing & commercial requirements Detail guidelines (gfa, plinth, density, etc)
SEARCH SEQUENCE 1. Start – re-use of previously developed land & buildings 2. Identify sufficient land & capacity to meet needs 3. Location – priority to transportation nodes & services
CONTROL RELEASE OF SITE (BY PHASING)
-
Slow down pattern & speed of growth Ensure that infrastructure is coordinated
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REVIEW & MONITOR -
Every 5 years Update plan
F I N A L
Figure 2.2:
R E P O R T
Sequential Approach to Determining Planning Applications for Residential Development PAN 30
Receive application for residential development
Yes Is the site 0.4 hectare (Section 3) or above? No seq approach required
Yes
Is the application a further
No
phase of an existing scheme?
No sequential approach required (unless site is part of a UDP Housing Proposal or forms part of a larger site over 0.4 hectare that may have potential for residential development)
No
Is the site wholly brownfield? (Section 4)
No
Yes Do NOT assess application site against alternative sites
Assess application siteagainst PPG3 policies and criteria (Section 7)
Assess against all available brownfiled sites (as set out in Table 1) and against PPG policies and criteria)
Are there available brownfield sites within the area of search?
Does the application site perform so poorly against PPG3 policies and criteria that it ought to be refused?
Yes Yes Refuse Application
No
Refuse application
Approve Application
No Approved application unless the site performs particularly poorly against PPG3 policies and criteria
Footnote: Issues such as design and layout, mix of dwelling types and size and car parking spaces should be considered as a matter of course in any application for residential development
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F I N A L
2.8
R E P O R T
REQUIREMENTS FOR IMPLEMENTATION
circumstances of the particular town centre. In addition they should also
There are several factors and elements that
address
are required for the implementation of the
of
requires
built
and
where
appropriate
existing vacant and under-used premises in the town centre should be addressed
and retailers should have regard to
as part of this approach. Consideration
the format, design, scale of the
should also be given to whether the
development, and the amount of car to
form,
town centre. The scope for converting
preparing their proposals developers
relation
should
better fit with existing development in the
as well as planning authorities In
in
approach, they
in order that their scale might offer a
and
realism from developers and retailers
parking
an
adjusting or sub-dividing large proposals,
sequential
flexibility
such
the proposed development in a different
The Government recognizes that the approach
and
consider the scope for accommodating
Support of Town Centres as the first choice
the
identify
sympathetic to the town setting. As part
below:
of
to
their requirements, but in a manner
outlined in Scotland’s NPPG8 as extracted
application
need
assemble sites which can meet not only
sequential approach. These have been well
2.8.1
the
range of goods to be sold, including, say,
the
bulky, electrical and fashion goods,
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F I N A L
R E P O R T
could be retailed from a town centre
2.8.2
Action required -Development Plans
or edge-of-centre site, in some cases In
in a different manner.
preparing
development
plans,
planning authorities should take account of the broad forecasts of retail demand,
Planning authorities should also be
deficiencies in retailing provision (if any),
responsive to the needs of retailers
and how the retail sector is likely to
and other town centre businesses. In
respond to that demand over the plan
consultation with the private sector,
period, by reference to location and
they should assist in identifying sites in
type of retailing. Likewise, they should
the town centre which could be
take account of the market demand for
suitable and viable, for example, in terms
of
proposed
size use,
and and
siting
for
the
are
likely
to
other related developments, such as commercial leisure developments. They should, in
become available in a reasonable
consultation with
business
interests and the local community, seek
time, for example, within the plan
to agree a framework for promoting the
period or 5 years, where the plan
retailing and commercial leisure roles of
period is short or silent on the matter.
town centres, co-ordinated with their
There may also be sites in town
policies on transport, car parking and
centres which are currently subject to
regeneration.
This
should lead to a town
centre
strategy
involving
the private sector including retailers, leisure
operators,
property
owners
and investors, and infrastructure providers,
setting
out the scope and policies change, constraint.
The
planning
authority
for renewal
and diversification.
should indicate whether, how and when
the
constraints
could
2.8.3
be
Identify Qualities of the Town Centre
resolved, for example, by assisting in
Planning authorities should identify and
land assembly.
build on the essential qualities of the
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F I N A L
R E P O R T
centre and seek to ensure that it
the
opportunities
housing
meets the needs of the community it
and
serves. They should take account of
mixed-use developments; and
the dynamic nature of the retail and
scope for adding to the quality
leisure industries and the need to
of the urban environment.
make
good
infrastructure
use
of in
town
2.8.4
centres. In this way, the town centre
centre in the first instance, and edge-ofcentre in the second instance, can satisfy
the opportunities for growth, improvement
the
(including
use
of
provision,
be within the overall policy objective of giving priority to, and strengthening and
the scope for diversification
safeguarding,
the
the impact of traffic, and the of
public transport ; the
need
retain
to and
improve open space
centre.
The
centre development should satisfy all
accessibility,
availability
town
scope for provision of any new out-of-
of town centre activities ;
consideration
If so, such developments should always
of uses to broaden the range
overall
is a requirement for further such provision.
existing
facilities;
through
centre developments and whether there
and the need to encourage best
demand
should be given to the role of out-of-
sites on the edge of centres) the
that
development and change. As part of
or
redevelopment
Establishing Priorities
to establish the extent to which the town
Important
considerations will include:
in
Within that context it should be possible
strategy can then be reflected in the plan.
particularly
existing
investment
development
offices,
for
and
recreational opportunities;
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F I N A L
R E P O R T
and should be incorporated in the
scope for retail developments with
development plan for the area.
town centres; if so, indicate their scale and general location, ensuring
2.8.5
Likely Impact on Rural Areas Where
appropriate,
co-ordination with expected housing, employment,
development
developments,
plans should take account of the likely on rural areas. They should also ensure

that their policies are compatible with
devising
policies
retailing
and
for
overall
commercial
leisure
leisure
development
be assessed.
In
the
transport
proposals with town centres should
minimise travel demand for shopping decisions.
including
reflect the criteria set out in this commercial
development and generally seek to locational
planned
guideline against which retail and
the aim of encouraging sustainable
their
other
infrastructure; and
impact of major shopping proposals
in
or
The key diagram should distinguish the types of location to which different
strategies, planning authorities should
policies apply.
take account of the existing stock of recently developed floorspace and the
likelihood
of
other
approved
proposals being developed. 2.8.6
Structure Plans The strategic framework in structure plans should :

set out the policy for supporting and
enhancing
town
centres,
including an assessment of how far the existing town centres might be able to meet the demands for new
shopping
floorspace
and
2.8.7
Local Plans
other uses, while contributing to consumer choice and access to
Local plans should provide local detail
new formats;
and a sharper focus to the structure plan framework. They should:

indicate whether, as part of the sequential
approach,
there
is
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F I N A L
assess
the
performance
R E P O R T
of
will be judged, including those in out-
individual centres and, as part of
of-centre locations.
the strategy for town centres, indicate
their
potential
for
change, improvement or stability;
aim to safeguard and support existing town centres and other retail
facilities,
such
as
local
centres and village shops, where they
are
serving
the
local
including
those
community well;
identify
sites,
suitable and available within a reasonable timescale, for new retail
and
commercial
developments
Local plans may also distinguish between
leisure
within
primary and secondary frontages in town
town
centres,
centres, and, if appropriate, at the
when
different
policy
approaches are being applied. In each
edge-of-centre;
case the plan should set out clear
policies
include criteria based policies to
decisions
provide guidance to developers who
may
propose
developments
out
with
for on
development
control
retailing
related
and
development. Plans should also show
new
any
the
areas
for
special
initiatives
to
improve accessibility for people with
framework of preferred sites in the
disabilities, and for shoppers with prams
development plan, and indicate
or pushchairs.
how such developments will be assessed; and 2.8.8
include
related
policies
for
Plans should be soundly based on up-to-
transport, car parking and for improving
the
Monitoring of Retail Developments
date information. Retailing policies and
environmental
proposals in development plans should
quality of town centres, retail and
therefore
commercial leisure developments,
be
based
on
a
factual
assessment of retail developments and
and specify design criteria and
trends. Data on the quality, quantity and
standards against which proposals
convenience of retailing in the area and
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F I N A L
R E P O R T
the potential capacity for growth or
quantity
change in the shopping centres will
information
be important to ensure plan policies
important for an authority to ensure that
and proposals are properly informed.
data are as comprehensive, accurate,
Where appropriate, authorities should
and up-to-date as possible. Relevant
maintain time series data on shopping
data might include population change,
patterns set up by former authorities.
economic growth or decline, retail floor
The private sector should also be
space,
encouraged
patterns,
to
help
provide
information. A useful source of data is
and
relevance
obtained.
It
is
of
the
therefore
shop
counts,
expenditure
car
parking,
accessibility,
pedestrian flows and consumer attitudes 2.9 SUMMARY From the above, it can be summarized that the Sequential Approach: i.
was to address the issue of property overhang due to speculation;
ii.
was to limit urban expansion into the countryside,
thereby
protecting
agricultural and environmentally sensitive areas; iii.
received strong political suppot from the National Government right to the Local Government;
iv.
had
pre-requisites
to
make
the
Approach a success, foremost being a good and integrated public transport in all city centres; v.
The location and size of brownfield sites
the publication Retail Inquiry (Central
in the inner city was vital in order that the
Statistical Office); Scottish results are
approach be offered as an option for
produced
development locations;
biennially,
and
are vi.
reported in the Scottish Economic
Detailed guidelines and data on each
Bulletin (available from The Stationery
potential site are in place in order that
Office).
these be offered as first choice to the developers; vii.
The validity of any assessment will
The
approach
be
legislated
in
Structure Plan and Local Plan system.
depend particularly on the quality,
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the
F I N A L
In
order
to
see
whether
the
R E P O R T
Sequential
namely
Approach fits into the Malaysian Planning and
the
Kuala
Lumpur
Metropolitan,
Georgetown Metropolitan ,
Development scenario, the urban issues faced in Malaysia must first be identified.
The
3.1.1
KUALA LUMPUR METROPOLITAN AREAS
following are the current issues faced in the The most prominent case of rapid
Malaysian urban scenario.
growth of the suburb is in the Kuala 3.1
Lumpur Metropolitan Area. While the
TRENDS AND PROBLEMS OF URBAN GROWTH AND DEVELOPMENT IN PENINSULAR MALAYSIA
rapid
growth
of
Kuala
Lumpur
is
undeniable, a closer look of population data, especially those starting from the
Malaysia officially became an urban nation in
1980 Census showed that most of the
1991 when 51 percent of her population
urban growth in Klang Valley for the
resided in urban areas. The percentage now
past two decades occurred outside of
stood at around 65 percent and is expected to
the city limit of Kuala Lumpur, i.e. the
increase to 75 percent by 2020. However, upon
suburbs.
closer inspection, most of these growths are in
Kuala
Lumpur
population
growth was adversely affected by this
at fringe of traditional main urban areas,
development.
mainly in the newly opened up suburbs. This sections looks at urban growth in two main
Kuala Lumpur’s population growth rate
metropolitan areas in Peninsular Malaysia,
between 1980 to 2000 was much less than that of Malaysia. This is in contrast
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F I N A L
to
its
rate
of
growth
since
R E P O R T
its
and Semenyih are located), followed
establishments more than 100 years
by
Gombak
and
Petaling
districts
ago where the rate of population
(comprising of Petaling Jaya, Subang
increase for Kuala Lumpur was much
Jaya and Shah Alam).
higher than the nation’s average. In between 1970 to 1980, population
The trend of suburbanization is more
growth rate of Kuala Lumpur was at
evident
3.50
During
percent
where
as
Malaysia’s
average was 2.30 percent.
between this
period,
1991 the
and
2000.
population
growth for Kuala Lumpur was only 1.39 percent per annum, about half the
In
between
the
annual growth rate of 2.60 for Malaysia.
population of Kuala Lumpur grew by
Since the 2.60 is much closer to natural
only 2.00 percent per annum, smaller
population growth rate, the figure of
than that of Malaysia which stood at
1.39 percent indicates Kuala Lumpur
2.64 percent. During the same period,
experienced a net out migration of its
the State of Selangor grew by 4.33
population during that period.
percent per annum. Most significantly,
Based on the inter-state migration in
the
districts
between 1986 to 1991, Kuala Lumpur
surrounding Kuala Lumpur with the
indeed had a net migrant of –3.7
highest in Ulu Langat (where Kajang,
percent which was the second highest
growth
1980
came
to
1991,
from
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F I N A L
R E P O R T
net out migration after Perak at -3.8
the city; Ulu Langat grew from only 20
percent. In comparison, Selangor had
percent of the size of Kuala Lumpur to
a net migration of 6.8 percent during
about 75 percent of the size of the
the same time period.
capital in the same 20 years period. This has led to the expansion of urban builtup 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 3.1.
Most of the people who migrated out of Kuala Lumpur moved into Selangor. Actually, more than one third of out of state migrants into Selangor between 1986 and 1991 were from Kuala Lumpur (109,334 of the 290, 00 in migrants). During the same census, 56,045 people moved
from
Selangor
into
Kuala
Lumpur. Thus, for every resident that Kuala Lumpur gained from Selangor, it lost two of its people to the state. The imbalance was even higher in the 2000 census. During the five years period of 19861991, almost half of Kuala Lumpur outmigration to Selangor were to Ulu Langat District, followed by Petaling and 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
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F I N A L
R E P O R T
Figure 2.1: Urban Built-up Area Morphology in Klang Valley This urban sprawl phenemona has led to the depletion of green areas in KLMR as shown in Table
Year 1988
Year 1990
3.1
below.
What
is
worrying is that the loss of green space
was
actually
higher
than
the
much
population
growth in KLMR which indicates unsustainability of present urban development.
Year 1994
Year 1996
Thus,
planning paradigm has to be found to arrest this situation.
Year 1998
Year 1999
Year 2002
Year 2004
new
Source: Ahris Yaakup et.al (UTM) National Planning Seminar 21 November 2005
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F I N A L
R E P O R T
Table 3.1. : Percentage of Green Area in Kuala Lumpur, 1988 to 1998
Source: i) BKWPPLK, (2001) et.al (UTM)
ii) Ahris Yaakup
Figure 3.2: Urban Green Changes in Klang Valley
Year 1988
Year 1999 Source: Ahris Yaakup et.al (UTM) National Planning Seminar21 November 2005
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F I N A L
3.1.2
R E P O R T
Urban Development Trends of Penang
Timor Laut district, where Georgetown is
and Georgetown
located, as the centre of population concentration
in
the
state.
The
City of Georgetown
percentage of the state population
and its surrounding
living in Timor Laut was reduced from
area is the second
almost half (48%) in 1970 to only 34
largest metropolitan
percent in 2000.
area
in
Malaysia.
The dominance of Georgetown as the
On the other hand, Seberang Perai
main urban centre of Penang and the
Tengah (where Butterworth and Bukit
northern region was
Mertajam are located),
very evidenced
Seberang
ever since the founding of the city a
Perai Selatan (where Batu Kawan is
few centuries ago.
located)
and
Barat
Daya
had
increased their shares of the state Things began to change since the
population. The trend here shows that
1980s, however. The attractiveness of
districts surrounding
Georgetown and its dominance has
District, i.e., Barat Daya, SP Tengah and
started to wane off. Due to the high
Selatan had increased their shares of
cost of living in the city as well as the
the population while Timor Laut’s share
relative
had decreased. This may be one
attractiveness
of
new
development outside the city, many people
started
to
migrate
out
outside
of
of
Georgetown started to
attract
people
more
and
grew
very rapidly since the 1980s. Table 3.2 shows at the macro level the population trend in the state of Penang. One notable change is
the
importance
reduced of
Timor
Laut
indication of urban sprawl in the state.
Georgetown to newly opened areas. Districts
the
the
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F I N A L
R E P O R T
Table 3.2: Population Ditsribution by District, Penang State, 1970-2000 1970
District
Population
1980
1991 Population
2000
%
Population
%
%
Population
%
161,975
17.98
236,270
22.20
294,051
23.88
SP Tengah
117,475
15.19
SP Utara
161,524
20.89
199,449
22.14
224,647
21.11
243,938
19.81
SP Selatan
63,626
8.23
71,558
7.94
84,771
7.97
117,722
9.56
Timor Laut
369,991
47.84
391,400
43.45
395,714
37.18
416,369
33.82
Barat Daya 60,711 7.85 76,390 8.49 122,764 Pulau Pinang 773,327 100.00 900,772 100.00 1,064,166 Source: Statistic Department Malaysia, 2005 cited by Zuwairi, 2006
11.54 100.00
159,129 1,231,209
In terms of population growth rates, the average annual growth rate (AAGR) for Barat Daya, Seberang Perai Tengah and Selatan were rather high since 1970 (Table 3.3). On the other had, the AAGR for Timor Laut was below 1 percent per year during the three decades. Overall, these three districts grew more than four times faster that Timor Laut.
Table 2.3: Average Annual Growth Rate by District, Penang State, 1970-2000 Average Annual growth Rate
District
1970-1980 (%)
1980-1991 (%)
1991-2000 (%)
NEGERI PULAU PINANG
1.52
1.51
1.62
Seberang Perai Tengah
3.21
3.43
2.43
Seberang Perai Utara
2.10
1.08
0.91
Seberang Perai Selatan
1.17
1.54
3.64
Timur Laut
0.56
0.09
0.56
Barat Daya
2.29
4.31
2.88
Source: Statistic Department 2005 cited by Zuwairi 2006
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12.93 100.00
F I N A L
Figure 3.3:
R E P O R T
Average Annual Growt Rate by District, Penang State, 19702000
bigger. This process took a long period of time. During the process, there were a lot of changes in the morphology of the city and many problems occurred in the long process of
5
urban development.
Purata Kadar Pertumbuhan
4 3
Researchers
of
urban
2
studies have found the triggers that started the
1
changes of the urban
0
morphology and these
1970-1980 1
1980-1991 2
1991-2000 3
SPT
3.21
3.43
2.43
SPU
2.1
1.08
0.91
urban growth which led
SPS
1.17
1.54
3.64
to
TL
0.56
0.09
0.56
phenomenon in general.
BD
2.29
4.31
2.88
Decade after decade,
were
urbanization
the
urban
and
sprawl
the population of the city
Tahun
grew and the difference Source:
Statistic department 2005 cited by Zuwairi 2006
between urban and rural population becomes more obvious. The population in the city is higher than before while
These urban tends are also evidenced in
other
urban
areas
in
the rural population declines.
Malaysia
including the Johor Bahru Metroplitan
From
areas as well as smaller cities such as
the
definitions
reviewed,
urbanization is structured by two major
Ipoh, Seremban and Melaka.
elements,
namely,
population
and
economy. Both elements can explain
Urban sprawl is not a new issue. It is an
urbanization
impact of development from the past
clearly.
Demographic
change in an urban area generally will
that has occurred over a hundred years.
all
cause urban space expansions. This is
Urban development started
due to the demands generated by the
since the first century when people
population. Since
started to develop their skills in built
business
activities
have become the main activity in
environment to enhance their way of
central urban cores, the population
life and their needs. The process of
actually earns higher income. Since the
urban development subsequently grew
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F I N A L
R E P O R T
land value and cost of living are higher
3.1.3 Issues of Urban Sprawl
in the urban cores, the population then consequently moves outside the urban
Critics of sprawl argue that urban
cores to the periphery where there is
expansion encroaches excessively on
cheaper land. This will lead to urban
agricultural land, leading to a loss of
explosion and expansion.
amenity benefits from open space as well
as
the
depletion
of
scarce
According to John Butler and Patrick
farmland resources. The critics also
Grookes (1973), the pull factor is a
argue
positive attraction of cities, derived by
generated by urban expansion create
the concentration of population and
excessive traffic congestion and air
activities.
of
pollution. In addition, growth at the
activities offer employment, services
urban fringe is thought to depress the
and guarantee better living compared
incentive for redevelopment of land
to those who live in the rural areas.
closer to city centers, leading to decay
These activities are like magnets which
of
attract people to migrate into the town.
commentators claim that, by spreading
These
concentrations
that
the
downtown
people
long
areas.
commutes
Finally,
some
out,
low-density
suburban
development
reduces
social
The basis of urban growth is that, an
interaction, weakening the bonds that
urban area or a town doest not exist on
underpin a healthy society. (Brueckner,
its own. The largest urban areas today
Jan, 2001).
such as London originated from small concentrated
villages.
Even
Johor
Bahru and Kuala Lumpur were formed and structured from small villages. As time goes by, the number of total population will then increase and the economic
structure
will
get
more
complex. Due to the complexity of the economic
structure,
more
people
migrate and populate to these areas. Consequently, these areas will face rapid urbanization and expansion of the urban area.
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F I N A L
There
are
interconnected
either in the developed country or
reasons why urban sprawl, a form of
developing country has changed the
urban growth characterized principally
lifestyle of the nation. The economic
by
scattered
growth and change in society are also
the
most
a result of urban development and
pressing concerns facing cities. At the
urban growth. In this case, we must
forefront of the criticisms levelled at
understand that urban development
sprawl are its influence on urban travel
which responds to economics growth
patterns;
has caused environmental, economics
low
several
R E P O R T
densities
development, is
and
one
impacts
on
of
service
and
infrastructure provision; loss of resource
and social disaster.
lands, farmland, and encroachment on environmentally
sensitive
areas;
Urban
development
consumption
influence on urban energy efficiency;
resources. Our environment as seen
psychological
to
today, mostly consists of non-renewal
resident populations; and central city
resources. Land and soil are the most
decline.
concerned as they are non–renewable
social
costs
resources.
The
numerous
the
pollution; ecological disturbance; its and
of
involves
changes
natural
from
Sustainability has become a central
agriculture land use to urban use tend
theme of our environment, human
to be permanent and reversible only at
development and resource use. The
a very high cost. Regarding this, over
central idea is that we should use
the
resources in way that do not diminish
development
them. Since the term “sustainability�
European countries and the expansion
has been brought into our vocabulary,
of urban areas in the Western Europe
one
questions
countries have increased over three
whether our resources are sustained or
times compared to the growth of
otherwise.
population. The rapid urban expansion
issue
emerges Economic
and
development
past
20
years, in
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the
low
density
periphery
of
F I N A L
R E P O R T
rather than the population growth have
housing estates and road, the surface
gobbled
land
turned into solid surface which caused
Environmental
the urban heat island phenomena
resources
large
amount
(European
of
Agency, 2006).
(European
Environmental
Agency,
2006). 3.2
SUSTAINABLE DEVELOPMENT
The achievement of the objectives of planning will not be meaningful if the achievement is only temporary, and the desired situation once reached is not sustainable. 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. Ever since the Earth Summit in Rio
de
Janeiro
in
1992,
“sustainable
development” has been the agenda (Agenda
We can make an assumption on how
21)
much the development or build-up areas have sealed the land resources permanently.
Edith
Lavalle
(2002)
explained that sprawl transforms rural areas
into
subdivisions,
shopping
centre’s, parking lots and many more. These have changed the face of rural area from green and peaceful, to concrete. The rapid expansion of urban development across the landscapes also reduces the capacity of soil to
adopted
perform
function.
planning for their growth and development.
destroyed
The definition commonly used for “sustainable
Moreover, farmland
an
essential
Sprawl and
has
therefore
by
member
countries
in
development” is “development
affected
agricultural productivity and agriculture
their
that
meets the needs of the present
land. The land and soil which contain trees and open space are used to
without compromising the ability
naturalize the surroundings, keeping the
of future generations to meet
surface cool. However, since the land
their own needs.
or farmland has been converted to
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(Brundtland, 1987)
F I N A L
R E P O R T
“Although this definition is more concerned
same
time
preparing
for
the
with the rate of use of resources that will not
change that cannot be avoided
climate
enable the resources to be able to be replenished
in
the
future,
“sustainable
natural resources – understanding the limits
development” encompasses sustainability of
of the natural resources that sustain life,
economic and social development as well as
such as water, air and soil
of environmental and ecological protection.
sustainable communities – looking after the places people live and work, for example, by developing green, open spaces and building
energy-efficient
homes.
(UK
Government) In Malaysia, concerns about sustainability in development
It
can
also
establishment of an efficient,
be
equitable
expanded to mean that developing a better
to
development of
for a better quality of life for another sector of
the
society.
country
towards achieving developed nation
Sustainable development covers a very wide
status
range of activities. Four key areas have been
and
identified:
produced,
used
2020”,
objective “To
II
optimize
utilization of land and natural resources for
sustainable consumption and production: designed,
by
states
sustainable development.”
changing the way products and services and
However, it is a different matter when it comes
disposed of – in short, achieving more with
to
less
sustainable
guide the overall
reduce the quality, or deprive the opportunity
are
and
national spatial framework
quality of life for a sector of society should not
been
goal of the National Physical plan is “The
the opportunity for a better quality of life for generations.
have
state and local levels. For example the stated
now should not reduce the quality, or deprive future
growth
indicated in most of the planning at national,
It means that developing a better quality of life
the
and
the
implementation
of
this
planning
intention and to the day-to-day decisionmaking in the process of development and the
climate change and energy – reducing
approval of development projects, such as the
greenhouse gas emissions whilst at the
de-gazetting of forest reserves, the cutting of
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F I N A L
R E P O R T
hill lands, and the conversion of agricultural
reduces the capacity of soil to perform
land, recreational open spaces and water
an essential function. Moreover, sprawl
catchment
areas
with
has reduced farmland, thus affecting
subsequent
undesirable
as
agricultural productivity and agriculture
to
building impacts
land, such
flooding, soil erosion, land instability, loss of
land.
The land and soil. Which surface
agricultural products, loss of open spaces and
cool.
insufficient water supply.
farmland has been converted to housing
However, since
the
land
or
estates and roads, the hard surfaces are Urbanization and the resulting urban sprawl
contributors to the urban heat island
have serious implications on the goals of
phenomena
achieving sustainability. Amongst the impact
Agency, 2006)
(European
Environmental
of urbanization and sprawl on the issues of sustainability are outlined below.
a.
3.2.1 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
Edits Lavalle (2002) explained that sprawl
centers grow in size from village to
transforms rural areas into subdivisions,
town to city, they tend to have a
shopping centres, parking lots and many
corresponding increase in average
more. These have changed the face of
temperature (Wikipedia, 2006). The
rural area from green and peaceful, to
degree
concrete. The rapid expansion of urban
depends
development across the landscapes also
of on
the
temperatures
the
size
of
the
metropolitan area. The bigger the
An urban heat island (UHI) is a metropolitan area which is significantly warmer than its surroundings. The temperature difference usually is larger at night than during the day and larger in winter than in summer, and is most apparent when winds are weak. The main cause of the urban heat island is modification of the land surface by urban development; waste heat generated by energy usage is a secondary contributor. As population centres grow they tend to modify a greater and greater area of land and have a corresponding increase in average temperature. Partly as a result of the urban heat island effect, monthly rainfall is about 28% greater between 20-40 miles downwind of cities, compared with upwind.
metropolitan
areas
temperature
will
are, be
the higher
accordingly. The heat is due to the urban material - concrete, steel,
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F I N A L
R E P O R T
glass, etc -which seal the land and
Figure 2.1
nature to solid surface. The loss of soil
or
land
development
resources
to
reduces
the
also
Population Densities and Energy
Consumption Selected World cities
capacity for the soil to act as carbon sink, to reduce dangerous gases which are the major factor of global climate change. Furthermore, rainwater which falls on the sealed areas (built-up area) is
heavily
polluted
by
the
transportation agent such as tires, dust and chemicals in concrete and
building
materials.
Running
water now contains heavy metal. It has been polluted and washed into the major drainage system and river,
thus,
pollutes
the
c.
whole
Transportation
hydrological system. This will lead to ground water pollution and affect
Another consequence of urban sprawl is
the
the
water
quality
(European
Environmental Agency, 2006). Increasing Consumption of Energy
transport.
The
energy
characterize
increase
lower
depends
on
increase
in
relates
to
private energy
in
the
emission
of
carbon
dioxide to the atmosphere. If cities provide
consumption the
energy
consumption which in turn leads to an
population densities and high rate of
An
transportation
link
between population densities and consumption.
cities
of
proportion between private and public
shows 17 cities around the world
energy
in
rate
of mass transportation systems and the
consumption of energy. Figure 2.2 consistent
the
the rail and road network, level provision
population densities is the growing
a
transportation.
numerous factors including the nature of
that consumes land and reduces
reflect
However,
consumption
A further consequence of sprawl
that
on
Transportation is also related to energy use.
b.
impact
poor
public
transportation
system, the use of private car increases
sprawl
and
phenomenon
energy
consumption
increases
(European Environmental Agency, 2006).
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F I N A L
R E P O R T
retention
and
storage.
Land
use
According to Edith Lavalle (2002), the
conversions from forest reserve to new
increase in use of private automobiles will
development
lead to the construction of new highways
ecosystem. The immediate impact of
and other road infrastructures to satisfy
sprawl is the lost of agriculture and
the growing demand. However, this will
natural land or exploitation of forest,
only cause further traffic congestion as a
wetland, and other habitats.
result of the use of private automobiles
inevitably will also give an impact on the
that will increase over time.
quality of life and human health such as
harm
the
natural
These
poor air quality and high noise level. d.
Loss of Natural and Protected Areas Sprawl is also closely associated to urban Urbanization also leaves an impact on natural
resources.
environment ecosystem
is
a
vital
functions
The
natural
part
of
that
transportation and green house gas emissions which have major implications
the
on global warming and climate change,
performs
which has brought about flooding, acid
including the production of food, habitat
rain, erosion and landslides.
for natural species, recreation, water
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F I N A L
e.
R E P O R T
Socio – Economic Impact
spending on commuting from home to work over longer distances, the cost to
From
the
social
point
of
view,
business of the congestion in sprawled
urbanization and sprawl has generated social
segregation
of
according
urban areas with inefficient transportation
to
systems and the additional costs of the
income. Unlike the middle and high
extension
income groups, people in the lower
of
urban
infrastructures
including utilities and related services
income group cannot afford to own
across
private automobiles. The middle and high
the
urban
region
(European
Environmental Agency, 2006).
income groups are the ones who move out of the urban cores to avoid the expensive
cost
of
living
and
3.3 URBAN PROPERTY TRENDS
the
congestion. This has caused residential
As the main goal of the use of Sequential
segregation between those in the urban
Approach in the UK was to address the
cores and the suburban areas.
overhang in the property market due to speculation, the study also undertook to
From
an
economic
point
of
view,
examine the property trends and market in the
urbanization and sprawl has had an
two cities under study.
impact on the increase in household
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F I N A L
3.3.1
R E P O R T
Overview of Penang Property Market
i.

Penang Island is witnessing a number of
at the Penang Turf Club in
schemes which are either planned or
Batu Gantung is expected
on-going, which when completed will
to
offer a large amount of residential and variety
of
take
15
years
to
complete. It will comprise of
commercial space into the market. have
Penang Global City Centre (PGCC) – 105ha (260 acres)
very large scale mixed development
There
City Centre
condominiums,
property
service
apartments,
products, many of which are intended
retail,
conference centre, two 5
to be attracting foreign interest and
star
high net worth individuals. It has been
hotels,
centre etc.
announced that Penang is the second
development
most popular place for Malaysia My
RM25 b.
Second Home purchasers, after Kuala
cultural
arts
The estimated cost
is
at
The Developer is
Abad Naluri a subsidiary of
Lumpur.
Equine Capital Bhd.
Amongst the large scale projects are:-
Penang Global City Centre
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F I N A L
R E P O R T
Penang Times Square – a
Bayan
RM1
Developer is SP Setia.
bil
integrated
development, construction
under by
Lepas
town.
Queensbay Mall – a revived
Ivory
water front retail project on
Properties Group on 5.2ha
29.5ha (73 acres) at the
(13 acres). It will have a 4
coastal area of Bayan Baru
level (300 retail units) retail
and is newly completed.
mall, 2 blocks of 20 storey
Penang Times Square
with 416 units and 360 units of
service
iii. Tanjong Tokong
apartments,
Warisan
Tanjung
and
offices and 5 star 400 rooms
Tanjung West – a 27.5ha (68
hotel. In addition there will
acre) mixed development
be a 0.8ha (2 acres) urban
along the coast at Tanjong
square for activities and a
Tokong.
monorail station.
Holdings Bhd.
Developer is UDA This is a
RM750 mil redevelopment ii.
Bayan Lepas
project which has stalled for
Setia Pearl Island – RM800mil
12 years. Warisan Tanjung is
township
on 12.5 ha will have 1,224
on
49ha
(122
acres) located 2km from
low
cost
flats
commercial units.
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and Tanjung
F I N A L
R E P O R T
West is on 21.6 ha reclaimed
4.1ha
land
will
(10.2
acres)
along
have
1,224
Gurney Drive.
Total gross
and
luxury
development
value
residential
units
and
commercial
units.
This
medium-cost
of
RM1bil. Developer is Hunza Properties Bhd.
appears to be the only large scale development catering
Many
of
the
large
scale
mixed-
to low cost and medium-
developments are located in the city or
cost purchasers.
near to the city. The high land cost in these areas have resulted in private
iv. Gurney Drive
sector
developers
going
for
high
Seri Tanjung Pinang – a 329
density developments many of which
ha
are targeted for high end purchasers.
master
development,
planned of
Land cost in the city and prime areas
1
outside the city centre can fetch from
comprising 325 units of 2 ½
RM100psf to RM150psf, for small sites of
storey terrace houses (Ariza
0.8ha (2 acres) and less.
Gurney
Drive.
north Phase
courtyard) together with a
marina and 160 units of
Residential developments on the Island,
service apartments, 96 ha of
close to the city are spread out in
land scaped parks. Phase 2
various locations with landed residential
will be made up of 296 ha
types concentrating in upmarket areas
with
such as Batu Ferenghi, Bukit Jambul,
a
cluster
of
islands
linked by a series of bridges.
Tanjung Bungah. These new launches
Gurney Paragon - A mix
are high end with most of them offering
development incorporating
units at more than RM1.0mil.
a shopping mall, high-end
terrace houses launched in these areas
condominiums to be built on
are large units and priced at more than
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Even
F I N A L
R E P O R T
half a million ringgit each. Condominium developments on the Island close to the city are varied comprising of; 
super-condominiums, priced above RM1 million per unit and are large units generally more than 2,000 sq.ft.,

medium-high range, generally above RM350,000 per unit, with sizes below 1,500 sq.ft.

medium-low range, generally below RM150,000 per unit, with sizes below 1,000 sq.ft. and generally are Malay Reserve title.
The super-condominiums are located in upmarket addresses in the city centre with sea front view, whilst the lower medium-range condominium can be found away from the city centre in areas such as Jelutong, Bayan Lepas, Relau etc. Generally the property development scene on the Island is active and there seems
to
be
no
problems
with
developers undertaking projects in the city as well as out of the city. Although there are times when the take-up is slow, demand for properties on the Island, in city locations or close to the city, is generally good, as Georgetown, Bayan Lepas, Jelutong, Bayan Baru, Bukit Jambul etc are areas of high employment.
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F I N A L
Table 3.3:
R E P O R T
Selected High-End Landed Residential Launches Penang Island
Hill top Villas (Asia Green)
Batu Ferrenghi
Asia Hills Courtyard Villas (Asia Green)
Bt. Jambul
Sierra Vista (IJM Properties)
Bt. Jambul
Moonlight Bay
Bt. Ferenghi
23 units 50 units
32 units (semi-d) 10 units (studio)
70 units (villa) 20 units (condo)
291 + 267 units (3 st. terrace) Setia Pearl Island (SP Setia) 207 units (semi-d)
Alila (Hunza Properties)
Tanjung Bungah
418 units
Desa Ara (Taimima)
Sungai Ara
11 units
Shamrock Beach (OJY)
Tanjung Bungah
62 units
3 storey & 4st villas RM2.8mil + land area : 418sm–1,200sm land area : 279sm–649sm RM1.5mil + Guarded 3 storey semi-d (strata) and studios 2,840 sq.ft. and 700sq.ft. RM833,000 (semi-d) 15 acres 4 storey villas and 2 cond units gated land area : 2,350 sq..ft.–6,550 sq.ft. build-up : 3,800 sq.ft.– 5,500 sq.ft. RM2,188,000 + (3,800 sq.ft. +) 112 acres 291 units (Life) 3 storey terrace 2,300 sq.ft.– 2,800 sq.ft. 267 (Aroma) 3 storey terrace 207 semi-detac 3 storey super link 4 storey villa RM680,000–RM750,000 + terraces RM1.1mil + semi-detac bungalow RM2mil + condominium and bungalow guarded & gated RM314,000 to RM888,000 2 storey terrace build-up : 2,500 sq.ft.– 3,000 sq.ft. RM618,000 and RM698,000 + 10 acres 3 storey terrace build-up : 3,100 sq.ft. + RM850,000 +
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F I N A L
R E P O R T
Table 3.4: Selected Condominium Launches, Penang Island i D Regency (i deal, Cygal)
Bt. Gambier
The Spring (IJM Properties)
Bt. Jelutong Express
Nautilus Bay (IJM Properties)
Jelutong promenade
Platino (IJM properties) Seaview @ Harbour Place(P J D)
Gurney Paragon (Hunza Properties)
Gurney Drive
Infinity (Hunza Properties)
Tg. Bungah
Kelawei View (Encony Devt.)
Jln Kelawei
Hillcrest Residences (Bt. Jambul Condominium)
Bt. Jambul
Bay star (C P Group)
Bayan Lepas
Mutiara Heights (Uda bina)
Jelutong
Vista Gambier (Lereng Wira)
Bt. Gambier
Seri Nilam (Koperasi Tunas Muda) Pangsapuri Saujana (Koperasi Tunas Muda) Pangsapuri Relau (Koperasi Tunas Muda)
Bayan Lepas
The View (Ivory Properties)
Penang Bridge area
Relau
Min. 322,500 Max. 429,500 1,200, 1,388 1,550 sq.ft. 925 sq.ft.– 1,281 sq.ft. (for registration) 78 units 3 storey 2,600 sq.ft. (for registration) 1,819 sq.ft. (luxury) 670 sq.ft.– 1,785 sq.ft. RM144,750 + 2 blocks high end condo and mall of 1mil sq.ft. 2 towers of 73 units and 147 units 2,810 sq.ft.– 4,629 sq.ft. 119 units condominium 2 blocks of 36 and 35 storeys 4,800 sq.ft.– 8,200 sq.ft 4,300 sq.ft.– 6,400 sq.ft. super condo 5.4 acres 65 units – Tower 1 79 units – Tower 2 2,200 sq.ft.– 7,100 sq.ft. RM719,290 to RM2,776,500 160 units 1,560 sq.ft. 1,800 sq.ft. 2,250 sq.ft 1,700 sq.ft. 2,490 sq.ft RM385,800 to RM1,479,000 RM108,000 to RM154,000 (bumi units) 800 sq.ft. 144 units intermediate 117sm RM268,000 (lowest) RM324,000 (highest floor) apartment RM152,000 – RM156,000 135 unit RM135,000 NA
2,068 sq.ft. (i) 2,088 sq.ft. © Cert. of Fitness just received
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F I N A L
Penang’s
property
market
is
R E P O R T
also
buoyed by large investments in major infrastructure
projects
currently
under construction or announced which includes;
Penang Outer Ring Road (PORR) a 17km, four-lane dual carriageway from Tanjung Bungah to Penang Bridge on the Island. The value is estimated at RM1.02bil.
Integrated transport hub at PGCC; proposing a RM1.1bil monorail link which is part of the NCER proposal.
Second Penang Bridge is a 24km bridge from Batu Kawan, Seberang Perai to Batu Maung on Penang Island. The estimated value is RM3.0bil.
An estimated RM7.8bil is going to be invested into improving Penang’s urban transportation system.
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F I N A L
3.3.2
R E P O R T
Property Transactions
The
is
active
in
the
34% of total number of commercial
(all types of properties) for the whole
transactions in the State.
State ranges from 13,903 in 2003 to
Again this
District is the most active and in terms of
17,380 in 2006 (although in 2004 higher
value of commercial transactions its
units were transacted at 20,857). property
also
commercial sector and accounts for
The total units of property transactions
Penang’s
District
market share is even higher at 50% of
transactions
the State’s total value of commercial
are
transactions.
dominated by the residential sectdor where over the last 4 years between
The following table shows the high level
74% to 79% of the total number of
of
property transactions in the State are
19,205
18,011
15,439
All sectors
17,528
24,292
23,840
20,877
the
District
for
the
Table 3.6 : Property Transactions in Timur Laut District, Penang 2004-2006
Table 3.5 : Volume of Property Transactions in Penang 2003 2004 2005 2006 13,177
in
residential and commercial sectors.
for residential properties.
Residential
activity
Source : Property Market Reports, Ministry of Finance
2004
Residential transactions RM Number mil 1,631.00 7,927
Commercial transactions
2005
1,486.42
6,986
328.77
766
2006
1,394.15
6,103
395.05
692
RM mil
Number
256.84
646
Penang has an active property market, 3.3.3
much of it is concentrated on the
Property Price Trends in Penang
Island, specifically in Timur Laut District. The
residential
District
Timur
property Laut
is
market active
accounted
for
6,103
transactions
out
of
a.
in
Most
popular
price
range,
RM100,000 – RM150,000
and
residential total
Over the past 4 years, transactions of
residential transactions in the State that
residential properties in Penang shows
is 40% of total residential transactions. It
that
is the most active district in Penang and
properties priced from RM100,000 to
in terms of value accounts for 51% of
RM150,000 which accounts for the
State’s
highest proportion of transactions that is
total
value
15,439
of
residential
there
is
strong
demand
for
22% of the total residential transactions
transactions.
in the State. The next price range of RM50,000 to RM100,000 and RM150,000
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F I N A L
R E P O R T
– RM200,000 are the next most popular
bring down the average price per
price band. This shows that, there is still
transaction of residential properties.
strong
demand
properties.
for
lower
end
From the
table
above,
65%
of
some
residential
transactions registered, were those priced less than RM200,000. However,
the
above
price ranges are very general
as they are
reflective of the whole State of Penang which includes the mainland. Prices on the mainland are lower than on the Island and therefore will
Table 3.7:
Most Transacted Price Range Of Residential (Top Residential Price Range)
Price Range
2003
2004
2005
2006
RM25,000-RM50,000
7%
9%
10%
7%
RM50,000-RM75,000
18%
15%
14%
14%
RM75,000-RM100,000
18%
16%
15%
15%
RM100,000-RM150,000
23%
21%
21%
22%
RM150,000-RM200,000
12%
13%
13%
14%
RM200,000-RM250,000
6%
8%
8%
8%
RM250,000-RM500,000
12%
13%
13%
13%
RM500,000-RM1mil
3%
3%
3%
4%
Source : Property Market Report, Ministry of Finance
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F I N A L
b.
R E P O R T
Strong Average Price Change For “Landed” Type Properties The highest average price change were for double storey semi-detached houses followed by terraces and single storey semi-detached houses. The previous table showed that condominiums and flats accounted for 70% of total residential transactions.
In spite of the good demand, the average prices of
condominiums and flats have not shown any incremental. This could be attributed to the large supply in the market (see next section on stock and future supply). Flats, condominiums and low cost flats (all strata type residential) in the District account for 84% of existing supply whilst future supply shows the bulk are also these strata type residential with minimal new supply of “landed” residential. Table 3.8 : Average price of residential properties by type Type of 2003 2004 2005 RM Residential RM RM
2006
Trend
% Change
RM
2000-2006
2000-2006
1st terrace
275,300
281,700
270,900
313,700
14%
2st terrace
378,300
397,600
431,800
430,200
14%
1st. semi-d
342,800
407,900
393,900
375,500
10%
2st. semi-d
516,300
550,100
567,300
626,300
21%
Detached
1,067,100
1,055,900
953,200
1,014,600
-5%
Condominium
261,700
250,900
257,000
258,300
-1%
Flat
107,900
105,000
105,700
107,500
-
Low cost flat
58,400
56,700
59,000
59,600
2%
Source : Property Market Report, Ministry of Finance
3.3.4
Popular Property type in Penang
constitute
69%
of
total
residential
transactions in 2006 in the District. This
For the District of Timur Laut there are
shows that purchasers in this District are
two very significant residential types
very
most popularly transacted and they are
acceptable
to
strata
type
residential properties. It is to be noted
flats and condominiums which together
that
flats
are
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more
popular
than
F I N A L
R E P O R T
Table 3.9 : Most popular type of residential property
condominiums as the flats are priced much lower. transaction
The average price per for
condominiums
RM260,000, flats are unit.
“Landed”
is
Type of Residential
RM107,000 per
type
residential
properties account for only 2% to 6% each
of
the
total
residential
transactions in the District, that is 1 storey terraces at 3%, 2 storey terraces at 6%, semi-detached at 6% and detached at 3%. This
shows
residential
that
“landed”
properties
have
type limited
appeal (because of the price factor).
2003
2004
2005
2006
Vacant land
0.8
1%
1%
3%
1st terrace
3%
2%
3%
3%
2st terrace
7%
5%
6%
6%
1st. semi-d
1%
2%
1%
2%
2st. semi-d
4%
5%
6%
4%
Detached
3%
3%
2%
3%
Condominium
19%
22%
21%
25%
Flat
51%
50%
49%
44%
9%
9%
9%
9%
The average price per transaction for 2 Low cost flat
storey terraces is RM430,000 whilst 1 storey terraces are at RM313,000 per
Source : `Property Market Report, Ministry of
unit, semi-detached at RM626,000 and detached at RM1,014,000. and
condominiums
are
Finance
Flats
affordably 3.3.5
priced and therefore for the majority of the
populace
would
be
Property Supply in Penang
more The District of Timur Laut accounts for
attractive over landed properties.
the most number of residential stock (existing supply) that is 41% of the total existing stock in Penang, (the next highest concentration of residential at 23% is in the District of Perai Tengah). There is a high concentration of strata properties in this District (District of Timur Laut) at 85% in 2006 (whilst in the District of Perai Tengah, strata properties such as condominiums, flats, low cost flats accounts for only 37% of the existing stock).
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F I N A L
Incoming
supply
(that
is
projects
R E P O R T
under
construction, launched projects) in the District of Timur Laut, showed the same trend (albeit even higher) as the existing stock, where 94% are for strata properties made up of flats (78%), condominiums (12%) and low cost flats (4%). From the foregoing secondary data, the District Timur Laut encompasses a large concentration of strata type residential properties and this trend is continuing in the future. In Penang, the bulk of the “landed” type residential are located in Seberang Perai that is Seberang Perai Utara, Tengah and Selatan. Table 3.10 : Large Supply of Flats And Condominiums, Timur Laut District, Penang Existing Residential Stock
Breakdown of Property Type
(as a comparison)
53%
Low cost flat 15%
18%
52%
14%
6%
19%
52%
14%
6%
Dist. Timur Laut
Condominiums
Flats
2004
115,387
17%
2005
120,836
2006
122,874
Terraces 7%
Source : Property Market Report, Ministry of Finance 3.3.6
Property Overhang The
NAPIC
(Pusat
are located in Sebarang Perai and Maklumat
Harta
District
Barat
Daya
comprising
Tanah Negara) Q1, 2007 report, states
terraces,
that the overhang of residential units in
and some detached units. There were
Malaysia have increased from 25,331
no overhang shop units or industrial
units in Q4 2006 to 26,045 units in Q1,
units in District Timur Laut according to
2007.
the NAPIC Q1, 2007 report.
Most of these overhang units
condominiums,
of
apartments
The
have been in the market for more than
incident of overhang in Georgetown
24 months.
and its periphery is therefore a nonissue.
Penang’s overhang situation is amongst the lowest with some 433 residential units of overhang. Most of these units
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F I N A L
3.3.7
R E P O R T
Estimates of Land Values in George Town The table below shows the estimates of land values in key areas in the city and outside
the
city
centre
for
both
commercial and residential sites. Table 3.11 : Estimates of Land Values, George Town RM psf 1ac to 2ac CITY CENTRE - Around KOMTAR areas
Commercial
230 – 250
(Jln Macalister, Jln Maxwell) 230 – 250 - Jln Burma area
Commercial
200
- Jln Hj. Ahmad Shah area
Commercial
180 – 200
- Lebuh Light, Lebuh Pantai,
Commercial
Lebuh Chulia areas - Gurney Drive areas
200 Commercial
OUTSIDE CITY CENTRE - Around the Penang Global
Commercial
100
Residential
100
Residential
150 – 180
- Bagan Jernal
Residential
150
- Pulau Tikus
Residential
150
- Jelutong
Commercial
City Centre areas - Jln Contonment, Ayer Raja road areas
Residential - Tanjong Tokong
60 – 70 50 100
Commercial
100
Residential - Tanjong Bungah
Residential
50
Outside of Georgetown, large tracks of land available for township development would be in Balik Pulau. Here the lands are estimated at RM10 psf.
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F I N A L
3.3.8
R E P O R T
Inference for Property Development in
property products above the market,
George Town
although most developers would not be able to do this especially if the
Property development in Georgetown
location is not a prime one.
and its periphery that is Bayan Lepas, Bayan Baru, Jelutong, Bukit Jambul,
For Penang Island, there would be no
Tanjong Tokong, Tanjong Bungah, Batu
problems with developing on brown
Ferrenghi etc is still very active and are
field
favoured
developers
by
developers.
Most
sites
in
George
here
Town,
are
as
actively
developers would have conducted
developing in the city as well as
some market research to ascertain
periphery areas around the city centre.
what type of products, price, target
However issues which would probably
market their proposed development
concern the developers would be the
would be geared for.
land
would
have
Developers
tabulated
price,
plot
ratio
and
other
the
authority requirements such as car
development mix, number of units for a
parks, set back, surrender for roads etc
particular
which would have an impact on the
site
based
on
planning
requirements pertaining to plot ratio
developable
and density.
development
Thereafter they would
conduct a feasibility study to ascertain
floor
development value.
whether their proposed development is profitable. Sensitivity analysis would be carried out and if the necessity arose, the developer would appeal for some concession from the local authority so that the proposed development is more viable. One
of
determines
the
key
the
development
is
factors
profitability the
land
which of
and
any price.
Depending upon the location, if the land is purchased at too high a price, it would be difficult to make reasonable profit for a particular development. However if a developer has a strong brand name and image, they would be able to set the prices of their
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space the
cost
of
gross
F I N A L
3.4
OVERVIEW
OF
SEREMBAN
R E P O R T
Table 3.12:
PROPERTY
MARKET 3.4.1
Selected On-going Residential Townships
Project Name
Land Area
Residential Components
Taman Mutiara Galla
NA
Terraces, detached
up of medium to large residential on-
Mont Jade
NA
Detached
going townships and new shopoffice
Taman Pulai Impian
NA
Terraces, semidetached
Taman Pulai Perdana
NA
Terraces, semidetached
Taman Merpati Seremban
NA
Terraces, semidetached
Seremban Forest Heights
470 acres
Terraces, detached
Seremban 2
1,500 acres
Terraces, semidetached, detached
Seremban 3
1,000 acres
Terraces, semidetached
Rasah Kemayan
NA
Terraces, semidetached, detached
Lavenda Heights
353 acres
Terraces, semidetached, detached
Taman Arowana Indah
NA
Terraces
Introduction The Seremban property development scene is currently predominantly made
developments.
In
the
District
of
Seremban within a 10km radus of Seremban town, there are some 12 new on-going housing developments ranging
from
medium
size
developments to larger ones spanning 350 acres to 1,500 acres. Seremban’s residential
township
developments
spread over a wide area and shows a tendency
towards
leap
frog
type
development.
Source : Henry Butcher,2008
All these new residential developments are providing “landed” type residential either
terraces,
semi-detached
or
detached units. The Seremban market have not taken to strata-title type residential
properties,
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as
landed
F I N A L
residential
is
largely
at
shop offices are also within residential
Given the landed
townships which generally do not have
residential’s generous built-up areas
high catchment such as Seremban
over condominiums and apartments,
Forest Heights (poor take-up, too far),
demand for the latter is thus very soft.
Seremban 2, Seremban 3, Lavender
Seremban’s residential developments
Heights.
affordable prices.
available
R E P O R T
also attract a number of purchasers who prefer to live in Seremban and
Seremban’s property development is
work in Klang Valley. They do not mind
not active and take-up rates for large
commuting
sacrifice
townships away from the town centre is
distance over buying an affordable
likely to continue to perform poorly
landed
unless
by
rail
property.
and Many
of
these
the
State
generates
higher
purchasers are in government service.
employment opportunities and initiate
However for townships located away
major economic catalysts which could
from the city, take-up rate is low and
spur
population is sparse.
Unless this happens, Seremban property
overall
demand
for
property.
will still likely attract mostly people from It
is
noted
developments
that in
the
residential District
Seremban and only a limited few from
of
Klang Valley, unlike Kuala Lumpur and
Seremban is spread over a wide area
Penang which have an active property
with a number of very large scale
market and are the top cities chosen
developments.
by expatriates and foreign investors.
Seremban has a low
population base with affordability levels which is much lower than neighboring Selangor and Kuala Lumpur.
3.4.2
Property Transactions
This is
reflected in the lower prices of its
The total units of property transactions
property.
(all types of properties) for the whole State ranges from 13,903 in 2003 to
In Seremban town and its periphery
17,380 in 2006 (although in 2004 higher
there are at least 8 shopoffice projects
units were transacted at 20,857).
launched providing mostly 3 and 4 storey shop offices. Whilst the take-up
Negeri Sembilan’s property transactions
rates of these launches (2006 and 2007
are dominated by the residential sector
launches) are good as the number of
where over the last 4 years between
units at each launch is limited, between
55% to 73% of the total number of
20 to 60 units only, actual occupancies
property transactions in the State are
may be poor for those projects not
for residential properties.
located in town areas.
Most of the
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F I N A L
R E P O R T
Table 3.13 : Volume of Property Transactions in Negeri Sembilan 2003 2004 2005 2006
the State’s total value of commercial transactions.
However
value
per
transaction for commercial is low at Residential
10,189
15,132
11,995
12,371
All sectors
13,903
20,857
17,215
17,380
RM320,000 in 2005 and even lower in 2006 at RM223,500 only.
Source : Property Market Reports, Ministry of Finance, 2007
The following table shows the level of activity in the District for the residential
The District of Seremban accounts for
and commercial sectors.
65% to 72% of residential transactions in the State, showing that this District is the
Table 3.14: District of Seremban Residential and Commercial Transactions Residential Commercial transactions transactions RM mil Number RM mil Number
most active in terms of property. 3.4.3
Active Market for Residential and commercial Properties but Values are Low The
residential
property
market
in
District of Seremban is active and accounted
for
8,580
transactions
out
of
residential
11,995
2004
1,086.48
9,003
311.43
1,032
2005
951.86
8,580
295.10
922
2006
1,044.46
8,026
256.42
1,147
Source : Property Market Reports, Ministry of Finance, 2007
total
residential transactions in the State that is 72% of total residential transactions 3.4.4
for the year 2005. In 2006, some 8,026 residential
transactions
from
12,371
were transacted in the District which accounted
for
65%
of
residential
transactions in the State.
Whilst the
a.
residential
value per transaction for the District is at
RM110,900
in
2005
Most popular price RM100,000 – RM150,000
range,
Over the past 4 years, transactions of
number of transactions are high, the low
Property Price and Product Trends in District of Seremban
properties
in
the
District
shows that there is strong demand for
and
properties priced from RM100,000 to
RM130,150 in 2006.
RM150,000 which accounts for the highest proportion of transactions that is
The District is active in the commercial
23% (in 2006) of the total residential
sector and accounts for 63% of total
transactions in the District.
number of commercial transactions in the State.
The price
range of RM150,000 to RM200,000 and
In terms of value of
RM75,000-RM100,000 are the next most
commercial transactions, the District’s
popular price band.
market share is even higher at 70% of
This shows that
there is strong demand for lower end
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F I N A L
properties.
R E P O R T
From the table above,
some 78% of residential transactions registered, were those priced less than RM200,000 (for 2006).
Table 3.15: Most transacted price range of residential (top residential price range) PRICE RANGE
2003
2004
2005
2006
RM25,000-RM50,000
11
9%
10%
9%
RM50,000-RM75,000
14%
11%
13%
12%
RM75,000-RM100,000
28%
26%
20%
17%
RM100,000-RM150,000
22%
25%
21%
23%
RM150,000-RM200,000
12%
17%
16%
17%
RM200,000-RM250,000
3%
4%
4%
7%
RM250,000-RM500,000
4%
4%
4%
8%
RM500,000-RM1mil
0%
0%
0%
0%
Others
6%
4%
12%
7%
Source : Property Market Report, Ministry of Finance
b.
Most popular type of residential, 1st and 2nd terraces
The flatted / strata type residential
The three top residential properties
properties
are
the
least
popular
transacted in the District of Seremban
whether condominiums, flats or low
are 1 storey terraces, followed by 2
cost flats and account for between 1%
storey terraces and vacant land. Since
(condominium, flats) to 3% (low cost
2004 both the 1 storey and 2 storey
flats) of total residential transactions (in
terrace houses appear to be equal in
2006).
popularity. However in terms of trends, the 2 storey terraces have gained the
This
most incremental from 20% in 2003 to
purchasers
have
25% in 2006.
preference
for
affordability
This shows a rise in levels.
The
1
storey
market
share
of
that a
Seremban very
strong
“landed�
type
residential properties over strata type
terraces has seen a decreasing trend in their
indicates
dwellings.
residential
transactions from 39% in 2003 to 27% in 2006.
3-34
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F I N A L
R E P O R T
Table 3.16: Most Popular Type of Residential Property Transactions Type of Residential Vacant land
2003
2004
2005
2006
16%
14%
21%
21%
1st terrace
39%
33%
27%
27%
2nd terrace
20%
33%
27%
25%
1st semi-d
3%
4%
3%
6%
2st semi-d
2%
2%
3%
6%
Detached
6%
5%
6%
7%
Condominium
1.5%
2%
3%
1%
Flat
0.9%
1%
1.7%
1.4%
Low cost flat
2%
2%
4%
3%
Low cost house
9%
6%
6%
4%
Source : Property Market Reports, Ministry of Finance, 2007 c.
Strong average price change for
“landed” type properties The highest average price change were for detached and semidetached (single storey) houses followed by terraces. Flatted residential especially condominiums and flats have not shown strong incremental since 2003 with either negative price change or very small incremental in prices, compared to the “landed” type residential. Table 3.17: Average price of residential properties by type Type of 2003 2004 2005 Residential RM RM RM Vacant land 96,900 96,900 65,800
2006 RM 85,000
1st. terrace
89,600
95,800
97,900
101,500
2st terrace
141,600
145,300
150,300
158,800
1st. semi-d
157,900
170,700
168,600
184,700
2st semi-d
223,400
243,400
207,500
236,600
Detached
195,500
244,500
229,900
248,700
Condominium
119,800
78,400
97,500
116,200
Flat
59,200
64,100
66,500
65,800
Low cost house
51,600
56,600
57,400
57,500
Low cost flat
38,200
37,800
34,000
34,800
Source : Property Market Reports, Ministry of Finance
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F I N A L
3.4.5
R E P O R T
Property Trends in District of Seremban The District of Seremban accounts for the most number of residential stock (existing supply) that is 66% to 68% of the
total
existing
Sembilan,
stock
(the
in
next
Negeri highest
concentration of residential at 13% is in the District of Port Dickson). There is a high concentration of “landed� type properties in this District (District of Seremban) at 81% in 2006. Incoming supply (that is projects under construction, launched projects) in the District of Seremban showed the same trend as the existing stock, where 78% are for landed type properties made up of terraces (45%), detached and semi-detached (31%) and only 4% were for condominiums. The latest NAPIC report shows that there is planned supply of 9,244 units of condominiums in the District, against a total
of
77,833
residential.
units
of
planned
This accounts for almost
12% of the total planned supply. Such a large number is worrisome, as the demand
in
Seremban
for
flatted
residential is poor. Table 3.18: Seremban Residential Stock by Type Existing Breakdown of Property Type Residential Stock Year Dist. of Seremban Condominiums Flats Low Cost Flat
Terraces
(As A Comparison)
2004
133,204
4%
53%
6%
49.7%
2005
141,910
5%
4%
6%
49.4%
2006
150,442
6%
4%
6%
49.4%
Source : Property Market Report, Ministry of Finance
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F I N A L
3.4.6
R E P O R T
Property Overhang
especially as development trends in the District of Seremban (the most active
The
NAPIC
(Pusat
Maklumat
Harta
district in the State), tends to be
Tanah Negara) Q1, 2007 report, states
developed in the outskirts and a strong
that the overhang of residential units in
trend towards leap frog developments.
Malaysia have increased from 25,331 units in Q4 2006 to 26,045 2007.
units
in
Q1,
Wednesday June 4, 2008
Most of these
overhang units have been in the market for more than 24 months. Negeri
Seremban’s
overhang situation is currently at 1,940 of residential 637
units
and
units
of
commercial overhang. Most of these units are located in District of Seremban comprising of terraces, detached, condominiums and low cost flats. total
of
1,369
overhang.
The District has a
units The
of
residential
breakdown
of
overhang 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. The state of overhang properties in Negeri Sembilan may not be high (compared to other states), but in comparison to Penang which has no overhang Sembilan’s
problems, overhang
then
Negeri
is
serious,
3-37
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F I N A L
3.4.7
R E P O R T
Estimates of Land Values in Seremban
Table 3.19:
The following table shows estimates of land values in Seremban. Commercial
City Centre
sites in the city centre could fetch
Outside City Centre
between
RM100psf
–
RM150psf.
Outside of the city centre, commercial plots would likely fetch in the range of
Estimated Land Values in Seremban by location Estimated Type Price RM100psf– commercial RM150psf
Labu Area
commercial residential
Seremban 2 Area
commercial residential
Bt. Rasah Area
Commercial residential
RM20psf to RM40psf whilst lands suitable for residential development would be in the range of RM7psf to RM8psf to as high as RM10psf to RM12psf.
Templer Area (Jln Tun Dr Ismail) Siamang Gagap Area
RM30psfRM40psf RM10psfRM11psf RM20psfRM30psf RM10psfRM12psf RM30psfRM40psf RM7psfRM8psf
commercial residential
RM20psf RM8psfRM10psf
commercial residential
RM20psf RM7psfRM8psf
3-38
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F I N A L
In
this
study,
perception
surveys
R E P O R T
were
Approach amongst planners and
conducted to assist in evaluating and assessing the
method
of
sequential
approach
policy makers;
in
Malaysian Development and Planning Process.
iii.
To receive feedback regarding the possibility
4.1
OBJECTIVES OF THE PERCEPTION SURVEY
of
introducing
and
implementing the concept into the Malaysian Planning system and the
The main objectives of the perception survey
requirements
were as follows:
organization and skills;
i.
To undertake the survey of local
iv.
legislation,
To gather the perception and views
authorities, state governments as
of policy makers, urban managers,
well as consultants involved in the
professionals
formulation,
and
developers on what constitutes a
the
sustainable urban form of urban
endorsing,
processing as
well
as
in
application of development plans in
the
planning
process
development.
and
procedures; ii.
on
To gauge the understanding and knowledge
of
the
Sequential
4-1
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and
property
F I N A L
4.2
R E P O R T
MODUS OPERANDII
properties in the city centre and also out of city centre.
The survey was undertaken in the 2 cities which have been identified as study areas, namely,
Number of Interviewees
George Town and Seremban.
The number and group of interviewees that was intended to be undertaken in each city,
The groups of people that were interviewed has been
were as follows:
selected based on the following
criteria:
i.
Person/s involved in formulation of Structure Plan/Local Plan
i.
The person would have been
ii.
3
Members of the Council’s Staff
involved in the formulation of
who would have been involved
Structure Plans and / or Local
in the day to day processing of
Plans;
applications that are received by
2
the Council; ii.
The person would be a member
iii.
Members of technical agencies
of the Council’s Staff who would
that are involved in the OSC
have been involved in the day
process;
to
day
processing
of
iv.
Local Councilors
2
applications that are received
v.
Developers (REHDA)
2
by the Council; iii.
3
TOTAL
12
The person would have to be a member
of
the
technical
4.3
RESULTS OF THE SURVEY
agency that is involved in the OSC process;
In getting the survey done, three (3) briefings were conducted, two at Majlis Perbandaran
iv.
The person would be a member
Pulau Pinang (MPPP) on 6th September 2007
of the Local Council who is
and 26th September 2007 and one at Majlis
involved
Perbandaran
as
a
committee
Seremban
(MPS)
on
24th
member of the Structure Plan /
September 2007. A briefing to REHDA will be
Local Plan Steering or Technical
conducted in December
Committees,
constraints and availability of the REHDA
member
of
and the
also One
a Stop
2007 due to time
members.
Centre; For v.
MPPP,
21
numbers
of
surveys
were
The person would have been
distributed and 10 numbers were returned and
involved in the development of
as for MPS, 23 surveys were given, and 12 were
4-2
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F I N A L
R E P O R T
returned. Therefore, for this interim report, a total number of 22 surveys (not inclusive of surveys from REDHA) will be used for preliminary analysis.
SURVEY QUESTIONS
NUMBERS
25
23
21
20 15
12
10
10
No. Survey Q Distributed No. Survey Q Returned
5
SEREMBAN(MPS)
PENANG (MPPP)
0
CITY Figure 4.1: Number of Respondents by city From the total survey distributed to both city councils, more than 50% responded to the survey. Therefore, the survey results would have reflected a fair view of the survey.
4-3
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F I N A L
R E P O R T
The breakdown of the participation of survey is as follows: Table 4.1: Breakdown of Number of Respondents by City Nos.
Local Council
Councillors
JPBD ‘Negeri’
JPBD ‘cawangan’/Pej abat Project others (JKR, Alam Sekitar,etc) Total
4.4
7
MPPP
2
Pulau Pinang
1
Negeri Sembilan
4
Melaka
1
Alor Setar
Redha
4
MPS
3 10
12
To be interviewed in December 2007
OUTWARD EXPANSION IS SUSTAINABLE
PERCEPTION SURVEY ANALYSIS
NUMBERS
The following are the survey questions that were analysed. Although the survey was designed for three (3) sections; A, B and C,
6
4 6
6
PENANG (MPPP)
only sections A and B of the survey questions
14 12 10 8 6 4 2 0
were answered and will be analysed in this interim report. Section C of the survey has
NO (NOT SUSTAINABLE) YES (SUSTAINABLE)
SEREMBAN (MPS)
Nos.
been designed for developers and the analysis CITY
of Section C will be covered in the technical report which will be submitted at the next
Figure 4.2:
stage.
Perception on Urban Expansion Sustainability
Section A : General The results from Penang shows that 4
QUESTION 1 :
out of 10 respondents believed that
Do you perceive the outward expansion and growth (of the urban areas) are sustainable?
outward expansion was not sustainable whereas 50% of Seremban respondents perceived that outward expansion is sustainable.
4-4
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F I N A L
R E P O R T
PENANG (MPPP)
SEREMBAN (MPS)
NO 40%
NO 50%
YES 60%
Figure 4.3:
Figure 4.4:
Percentage of Positive Opinion about Outward expansion of cities – George Town, Penang
YES 50%
Percentage of Positive Opinion about Outward expansion of cities – Seremban
60% of Penang respondents perceived yes to
Half of the respondents from Seremban
outward expansion due to the following
agreed to outward expansion and another
reasons:
50% disagreed to it. The outward expansion was seen as sustainable because:
1. May reduce traffic congestion
1. Seremban town is seen as unable to
2. Follow Development Plan and Structure
support new development.
Plan.
2. Many
3. George town is already a compact
constraints
in
developing
inner city areas.
city.
3. May reduce congestion in the inner city.
40% of respondents believed outward
4. Land
expansion was not sustainable for the following
prices
are
relatively
low
(outside of city centres).
reasons:
5. Unavailability of
1. Most outward expansion encroaching
land in the inner
city for proper development.
into green field areas. 2. More pollution created from the
However, another 50% of the respondents
expansion. 3. Poor public transportation facilities.
felt
that
outward
4. Directly reduced city centre
sustainable due to: 1. The
population.
need
expansion to
as
preserve
not prime
agriculture land from being further
5. Developments are not economically
encroached for new development.
distributed
2. Creation of sub urban migration which
reduces
the
inner
city
population. 3. Transfer of agriculture, ESA and bumiputera’s land.
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F I N A L
R E P O R T
5. Political interference to encourage QUESTION 2 : Do you perceive that the urban development of Penang and Seremban tends to follow the Sequential Approach Concept or tend to leap frog?
development in outskirt areas. 6. Lack of public facilities in city centre area i.e schools, libraries. (this was the answer for Seremban town). 7. Conversion of land from agriculture to mixed development were allowed and without proper monitoring. 8. Inner cities have many restrictions especially on heritage
PENANG & SEREMBAN : PATTERN OF DEVELOPMENT
conservation and conversion.
100 100
PERCENTAGE
9. Strict policy in
80
80
the inner cities
60
that
40
20
20
0
SQA
subsequently
LEAP FROG
encouraged
0 PENANG (MPPP)
outside
SEREMBAN (MPS)
development.
CITY
Figure 4.5: A
majority
of
Penang
and
Seremban’s
respondents agreed that development in both towns tended to leap frog rather than follow a
Question 3:
sequence. Eighty percent from Seremban and
What/which areas in the city would you consider as inner city, outer city and peripheral areas?
all those surveyed in George town (100%) agreed to the above because: 1. Land price issue 2. Better residential neighbourhood area i.e parks, quality of living
Please refer the following maps, for the sample
3. More choices of residential product
inner city boundary as per survey.
provided especially landed properties. 4. Many potential big land areas for development.
4-6
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F I N A L
R E P O R T
4-7
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F I N A L
R E P O R T
4-8
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F I N A L
R E P O R T
4-9
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F I N A L
R E P O R T
4-10
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F I N A L
R E P O R T
4-11
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F I N A L
R E P O R T
4-12
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F I N A L
R E P O R T
1. Question 4 & 5: As Councillors/ LA officers/ Developers, do you believed that the inner city should be promoted as the centre of living, business, social activities of the whole city? Give reasons to the answer? Figure 4 .6:
Perception
of
Inner
A lot of investment has been invested to upgrade the existing infrastructure and plastic transportation in the inner city.
2.
Potential to create night activities.
3.
To balance the activities in the cities i.e. living place, business centres and social activities.
City
PENANG & SEREMBAN : INNER CITY LIVING SHOULD BE PROMOTED 100
90
80 PERCENTAGE
60
50 YES
33
40 20
10
0
17
NO NO ANSWER
0
PENANG (MPPP)
SEREMBAN (MPS) CITY
Revitalization, George Town
Seremban
and
From the above it shows that many officials in Penang perceive that they are acceptable to the idea of
city revitalization by promoting
inner city living, business activities and social activities whereas those surveyed in Seremban felt that the inner city to maintain its traditional activities as an administrative centre and business centre.
These are due to the following reasons:
4-13
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F I N A L
R E P O R T
Question 7: If you perceived that the current developments are towards the outer city, are there any adverse impacts to the inner city? If Yes, what are some of these?
Question 6: Are current developments tending towards the inner city, outer city or peripheral areas?
Due to the results in question 6, inner city areas
Figure 4.7: Development Trends in George Town and Seremban
for George town and Seremban both experienced negative
CURRENT DEVELOPMENT TREND
impacts. Among the common issues are:
80% 70% 60% 50% PERCENTAGE 40% 30% 20% 10% 0%
1. Less activities in
73%
the inner cities
62%
after 7:00 pm, inner city 23% 15%
13%13%
cities became
outer city
dead and under
peripheral
utilized. 2. Services and
PENANG (MPPP)
SEREMBAN (MPS)
activities started to be
CITY
concentrated in the outer and
For Penang, the survey results showed that
peripheral areas.
current development trends are more within
3. Many office blocks became less
outer city areas, whereas for Seremban it
occupied and started to dilapidate.
clearly indicated that the development trend
4. Slowly, development for the inner cities
was more in the peripheral areas.
will not achieve target as specified in the development plans.
4-14
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F I N A L
R E P O R T
QUESTION 11,12 and 13 : Before today, have you been introduced to the concept of Sequential Approach or Smart Growth that are practiced and implemented in the UK and USA respectively?
QUESTION 8, 9 & 10: Do you think it is possible to encourage developers to develop in the inner city rather than the outer city areas?
DEVELOPER'S PARTICIPATION IN INNER CITY DEVELOPMENT PERCENTAGE
SEREMBAN )MPS( 50%
AWARENESS LEVEL
PENANG )MPPP( 90%
120 100 80 60 40 20 0
NOT AWARE AWARE
Seq App.(UK)
Smart Growth (U.S)
Seq App.(UK)
GEORGE TOWN (MPPP)
Smart Growth (U.S)
SEREMBAN (MPS) CITY
Figure 4.8:
Possibility of Developers’ Investing in the City Centre
Figure
The above survey shows the respondents’ view
4.9:
Degree of Awareness about Sequential Approach or Smart Growth Concepts
on whether the majority of developers in
The survey results above indicated that the
Seremban and Penang may be encouraged
majority of the respondents were unaware of
to develop in the inner city first if there are
the sequential approach or smart growth
enough assistance given. The respondents in
concepts. Less than 50% from the survey were
George Town have been more optimistic
exposed to these new concepts of sustainable
about the possibility (90 %) compared with
urban development.
those
in
Seremban
which
had
some
reservations. Related to this, the survey also showed that none of the respondents from both cities were aware of any incentives or encouragement by the
government
to
promote
inner
city
development.
4-15
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F I N A L
R E P O R T
QUESTION 14,15 and 16: Do you think Sequential Approach concept can be adopted and implemented in the Malaysian Planning System. If yes, what is needed to make the concept work in Malaysia? If NO why?
The respondents were initially given a briefing to introduce them about the concept of Sequential Approach. Then they were asked to
fill
in
the
survey
questionnaire. Based on the
SEQUENTIAL APPROACH IN MALAYSIAN CONTEXT
survey, more than 90% of the respondents believed that the concept
of
approach
to
100
sequential
80
development
PERCENTAGE
can be adopted in Malaysia,
60
0
needs and requirements are and
improved,
incentives,
and
i.e.
0
0
8
SEREMBAN (MPS)
needs
and
Figure 4.10:
skill
felt that amendments to the current legislation Planning
Standards,
as
well
as
improvements to the financial and economic incentives were the most important. Further to that,
the
survey
also
highlighted
that
partnership between developers, communities, government and other stakeholders are also required in order to ensure that the sequential approach
can
be
NO ANSWER (refer detail survey)
Perception of the Approach being adopted in Malaysia
needs. Among the listed needs, the majority and
CANNOT APPLIED
CITY
economics
organizational
10
GEORGE TOWN (MPPP)
legislative needs or standards, financial
CAN BE ADOPTED
40 20
provided that the following revised
92
90
applied
within
the
Malaysian context.
4-16
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F I N A L
SECTION B:
R E P O R T
PLANNING PROCESS AND LAND MATTERS
incorporated
in
the
formulation
of
development plans. These have been further elaborated by the survey that more than 50%
QUESTIONS 1 AND 2: Do you think the Development Plan System has guided development to be in a phased or sequential manner? Should Sequential Approach be incorporated in the formulation of Development Plans? If Yes, which documents?
of the respondents from George Town and Seremban believed that sequential approach should be incorporated in all the development plans,
i.e.
‘Rancangan
Rancangan
Tempatan
Struktur
Negeri,
Daerah,
and
Rancangan Kawasan Khas.’ Please refer the following charts.
Figure 4.11:
Perception of the existing development Plan System Towards Sequential Approach
EXISTING DEVELOPMENT PLANNING SYSTEM IN MALAYSIA 12 10 8 NUMBERS 6 4 2 0
2
5
8
7
GEORGE TOWN (MPPP): INCORPORATION OF SQ A INTO DEV. PLANS
0% 30%
RS RTD
NOT GUIDED BY SQ A
RKK
GUIDED BY SQ A
60%
GEORGE SEREMBAN TOWN (MPS) (MPPP)
10%
ALL NO ANSWER
0%
CITY
DEVELOPMENT PLANNING SYSTEM IN MALAYSIA 12 10 8 NUMBER 6 4 2 0
SEREMBAN (MPS): INCORPORATION OF SQ A INTO DEV. PLANS
11
10
8%
8% RS
1
0
YES, SHOULD INCORPORATE SQ A
25%
RTD RKK
NO, NOT REQUIRED
ALL
GEORGE SEREMBAN TOWN (MPS) (MPPP)
51%
NO ANSWER 8%
CITY
Figure 4.12:
Perception of future Development Plan System Towards Sequential Approach
Figures 4.13 & 4.14: Perception of the involvement of Sequential Approach in development Plan System
The survey showed that more than 50% of the respondents felt that the existing development plan has been guided by the concept of sequential approach. However, results from the survey also highlighted that the majority still felt that
sequential
approach
needs
to
be
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F I N A L
R E P O R T
1. Give proper incentives QUESTION 2 (II): Do you think that Structure Plans and Local Plans allow for development without sequence, which leads to leap frogging of development? Are the Structure Plan and the Local Plan detailed or structured enough to guide development in a sequential manner? Should these plans be structured to allow for Sequential Approach?
2. Abandoned projects and buildings in the inner city to be listed in the development plans and priority given to these lists. 3. Policy and Standards to be reviewed to promote more flexibility for inner city developments. 4. Development plans to include property trends and current market conditions and updated feasibility studies.
PERCEPTION OF STRUCTURE PLANS AND LOCAL PLANS WITH SQ A
NUMBERS
12
10
10 7
8
7
6 3
4 2
7 4
ALLOWED W/O SEQ WITH SEQ
4
NO ANSWER 1
0
1
DETAILED FOR SEQ
0
NOT DETAIL ENOUGH GEORGE TOWN (MPPP)
SEREMBAN (MPS)
NO ANSWER
CITY
Figure 7.15:
The
Structure and Local Plans in relation with Sequential Approach
survey showed
that
majority of the
respondents agreed that both structure plans and local plans promote development without sequence. It also proves that both plans are not detailed enough to guide development in a sequential manner. Therefore, the survey suggested
that
these
development
be
plans
should be structured to allow for sequential approach. Many proposals have been given by the respondents, amongst them are:
4-18
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F I N A L
R E P O R T
QUESTION 3: Do the process of obtaining planning approval, subdivision and land conversion provide the mechanism for sequential approach development?
PROCESS OF OBTAINING PLANNING APPROVAL, SUB DIVISION AND LAND CONVERSION 10 8 6 NUMBERS 4 2 0
9
9
PROVIDE MECHANISM FOR SQ A 2
1
1
GEORGE SEREMBAN TOWN (MPS) (MPPP)
DO NOT PROVIDE MECHANISM FOR SQ A NO ANSWER
CITY Figure 4.16:
Sequential Approach in the process of obtaining planning approval, sub division and land conversion
Both George town and Seremban respondents strongly agreed that the process of obtaining planning approval, sub division and land conversion have provided mechanism for sequential approach.
4-19
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F I N A L
R E P O R T
QUESTION 4 (a), (b) & (c): Are there any areas in the inner city, other parts of the city (brownfield areas) that should be re developed first? Identify these areas. How can they be developed? Will there be any problems for these areas to be developed?
The survey has highlighted several areas within the inner city that should be redeveloped as a priority.
These have been provided by the
officials
and
local
councilors
who
have
extensive and local knowledge of the two cities respectively.
Table 4.2: Identification of Priority Areas for Redevelopment in George Town and Seremban Cities. GEORGE TOWN
SEREMBAN
1. Government Quarters at Jln
1.
Sungai / Sp Chellah, 2. Shop lots
PRIORITY AREA FOR REDELOPMENT
Old school and government offices.
within the city.
2.
Jalan Dato’ Bandar Tunggal.
2. Bandar Air Itam.
3.
Peninsular Plaza,
3. Jelutong.
4.
Former Convent Site
4. Jalan Perak.
5.
Kemayan Square
5. Weld Quay – squatter houses,
6.
Tower blocks, Wisma Punca Mas,
7.
Seremban Parade
8.
Serounding Bukit Hill (Gan Hill)
9.
Pantai Industrial Area
vacant lands. 6. Lebuh Ah Quee- council social housing blocks. 7. Sg Pinang – riverside
10. Taman ABT
development, Jln Perak.
11. Opposite KGV school site.
8. Inner city of George Town
REDEVELOPMENT OF PRIORITY AREAS 6
6 5
5 4
4
URBAN RENEWAL
3
NUMBERS 3 2 1
1
1 0
0 GEORGE TOWN (MPPP)
SEREMBAN (MPS)
Figure 4.17: Type of re development for priority areas in George Town and Seremban. From the survey, it was
CONSERVATION
indicated
that
most
REHABILITATION
respondent believed that
T.O.R
redevelopment of priority
MIXED DEV.
areas within the inner city should be done through urban renewal followed
CITY
by
4-20
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rehabilitation
and
F I N A L
should
consist
of
mixed
R E P O R T
development.
vi. Reduce on planning standards where
However, The opinion of the respondents also
applicable to make sure that the
highlighted
development gives better returns to
concerning
that
there
these
were
areas
some
that
issues
must
be
investors.
considered. Among the common issues were:
vii. Promote government – private joint venture development.
i.
Land ownership
viii. For abandoned private developments,
ii.
No demand to take over abandoned
propose government take over for
projects.
conversion into government buildings
iii. Costs associated for redevelopment is too
or quarters.
high. iv. Strict development control policies. Question 6: Are there any successful urban renewal project in George town and Seremban?
Question 5: How can the State Government and Local Authorities help in the development of these priority areas?
The respondents also stated that there were very few successful stories on urban renewal projects in both the cities. The failure was The respondents also gave their views on the
mainly due to poor management of the
ways that the state government or local
properties
authorities may assist in developing the inner
complexes. Both George Town and Seremban
city. Amongst these were:
experienced success in urban renewal project
i. ii.
which
were
mainly
shopping
Providing professional advice and
for administrative centres i.e such as the
assistance.
redevelopment of old market into Kompleks
Reduce costs associated to the
Negeri and Wisma DPMNS in Seremban.
potential areas by writing off all government charges against the property and development. iii. Provide exemption of stamp duty and charges for interested investors. iv. Give exemptions on transfer and charges of land. v. Assist in giving faster development approvals to avoid higher holding costs.
4-21
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F I N A L
R E P O R T
ii.
The Sequential Approach as used in the UK has been brought about through
Question 7: In what way should the inner city be developed?
strong political support and political will; iii. There are already statements of policies and strategies towards city centre development,
sequential
approach
and transport oriented developments in Many from the survey agreed that the old inner
the National Physical Plan, the National
city of George Town and Seremban should be
Urbanization Strategy, and the State
redeveloped through conservation and urban
Structure Plans of Penang and George
renewal such as: i.
Town;
Preserving and conserving old buildings whilst providing them with modern facilities,
ii.
Avoid demolishing old heritage buildings except dilapidated ones;
iii. Re-branding of commercial street frontages to create identity; iv. Provide a mixed use activities such as residential, retail and commercial to attract more people in the city. It can be inferred that based on the study undertaken herewith, several elements that are pertinent to the rest of the study and should be considered
henceforth are as
follows: i.
There
are
no
clear
legislative
provision
regarding
sequential
and
succinct
in
Malaysia
approach
nor
smart growth;
4-22
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F I N A L
To
ensure
good
urban
growth
R E P O R T
and
ii.
development control, i.e. the regulation
development, we need good planning and
of
management. We need to formulate effective
management of land,
plans for urban development and growth and
the
development,
use
and
iii. plan implementation, monitoring and
to implement and manage the development
enforcement.
and growth well, by adopting a good system and set of procedures for the preparation of
They were analyzed to identify the strengths
these
which can facilitate the adoption of the
plans
and
for
the
control
and
management of growth.
sequential approach to achieve the objectives of sustainable development and smart growth,
The Interim and Technical Reports analyzed
as well as to see whether there are any
the existing system and procedures for the
weaknesses in them, which can hamper the
planning, regulation and management of the
achievement
use and development of land in Peninsular
development and cause problems and issues
Malaysia under the following headings:
in urban growth and development in the
of
good
and
proper
country. The findings include what are the likely i.
development
planning,
i.e.
the
causes of these weaknesses and problems. This
formulation of plans and policies to
leads
to
the
formulation
of
appropriate
guide development,
recommendations in this final report in order to resolve as much as possible the present
5-1
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F I N A L
weaknesses
and
development
problems
planning
in
and
the
R E P O R T
urban
management
system.
Director
of
Town
Planning
or the
and
Country
Local
Planning
Authority as directed by the State Planning Committee under Section 16B of the TCPA,
5.1
DEVELOPMENT PLANNING
e. the Comprehensive Regional Plan, prepared by the Regional Planning
Development
Planning
is
the
process
of
Committee under section 6A of the
formulating plans to guide, facilitate and coordinate
the
use,
development
TCPA.
and
management of land in order to achieve the
5.1.2
desired goals for the future growth of the area.
Weaknesses of the present Development Planning Process The
5.1.1
The Development Planning Process
findings of the
weaknesses
and
study
on
the
problems
in
the
preparation of development plans can Under
the
development
planning
be summarised as follows:
system in Peninsular Malaysia, plans and policies to guide and coordinate
i)
the use and development of land are
The Plan Preparation Process Is Too Long And Costly.
formulated at national, regional, and local authority levels, as provided for
The structure plan and local plan
under the Town and Country Planning
preparation processes follow a very
Act 1976(TCPA). These plans include:
comprehensive, meticulous
a. the
National
Physical
Plan,
systematic
process,
and
incorporating
survey, compilation and analysis of
prepared by the Director General
data, plan
of the Federal Department of Town
participation
and
required under the TCPA. The whole
Country
Planning,
under
section 6B of the TCPA,
formulation and
and
public
objection,
as
process has been deemed to take too
b. the Structure Plan, prepared by the
long, up to two years on the average,
State Director of the Town and
and is very costly. There are various
Country
reasons for this, which include:
Planning
Department,
under section 8 of the TCPA, c. the Local Plan, prepared by the Local
Planning
Authority,

under
from primary sources and ground
section 12 of the TCPA, d. the
Special
prepared
Area
either
by
The collection of data, especially surveys,
is
Local
Plan,
consuming.
the
State
tendency
tedious There on
5-2
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the
and is
time-
always
part
of
a the
F I N A L
R E P O R T
planning officers to collect and
departments and the local planning
analyze too much data which may
authorities, and a good computerized
be
system
eventually
unutilized
in
the
to
keep
all
the
necessary
formulation of the plan. These data
planning information under constant
are often not properly managed
review. This is also in accordance with
and kept up to date, creating the
the National Physical Plan which has
necessity to collect the same data
recommended that a central authority
again and again.
be charged with the responsibility to publish, on a regular basis, information

The
legally-required
participation includes
process,
objection
public
on land use development, and every
which
LPA be required to supply to the
hearings,
is
authority
tedious and requires a long time.
information
on
planning
approvals (NPP 17).
Some sectors of the public are not well-versed
with
planning
ii)
The Planning Problems And Issues Are Not Well Identified.
procedures and requirements and require more time.
Even with so much data collection, there are weaknesses in the analysis,

The decision-making process is also unduly long, as Local
Planning
Authorities
Planning
and
State
identifying
strategies.
of
problems in the planning area and the causes of these problems, especially
and unsure of the planning options, and
understanding
certain important planning issues and
Committees are sometimes unclear proposals
and
the social and non-tangible issues, such
The
as
decision-makers, most of whom are
urban
and
unemployment
politicians, are sometimes fearful of
rural and
poverty, under-
employment, inaccessibility to urban
the uncertain political implications.
needs,
increasing
crime
rates,
increasing cost of living, widening of The
use
computer
of soft
more
sophisticated
wares
and
income gaps, social segregation, and
the
other
geographic information system (GIS)
not being resolved, or worse, the
presentation and decision-making. This
problems
requires a permanent set-up in the Country
further
from
other
aggravated
by
inappropriate planning proposals and
Planning
strategies in the development plan.
Department dedicated to this task, with support
non-sustainable
at the least, the issues and problems
data compilation, analysis, mapping,
and
of
development. This has often resulted in,
will facilitate and hasten the process of
Town
problems
relevant
5-3
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F I N A L
iii)
R E P O R T
The Public Participation Process Is Not Effective.
process.
The
detail
procedures
for
public awareness and participation in the plan making process can be spelt
The requirement for public participation
out in the rules made by the State
in the preparation of structure plans
Authority under section 17 of the TCPA.
and local plans is a positive step towards involving the people who will
iv)
be affected by the plans for the better understanding
and
identification
Development Plans Are Responsive And Effective
Not
of Many of the proposals and strategies in
problems and for better selection of
the structure plans and local plans are
planning options.
not directly responsive to the issues and problems and hence not effective in
However the process takes a long time
solving the problems. One main reason
and has contributed to the delay in the
is that urban problems and issues,
plan preparation process. It has in
especially the social and non-tangible
many cases been found to be a ineffective
process.
The
ones, are not easily translated into
public
physical planning solutions. Another
participation in the structure and local
reason is that the development plans
plan preparation process often mainly
are still based very heavily on archaic
involves a very small proportion of the
approach of planning, such as fixed
people. Most of the people who may
and rigid land-use zoning. Other more
be affected by the proposals of the
flexible
development plan are not even aware
but
more
responsive
and
effective planning approaches should
of the plan.
be examined for adoption. A system to measure
For effective public participation and a
on
the
and
proposals and strategies need to be
is to educate the public and increase awareness
effectiveness
responsiveness of development plan
more responsive planning, the first step their
the
formulated.
planning
process, on their right to participate v)
and on how they can participate and contribute. Members of the public should
be
planning
familiar
system
enough
and
in
the
process,
be
Many structure plans and local plans are not sufficiently action-orientated
aware of their present and future
and time-specific. They do not indicate
needs, and be adequately articulate to make
intelligent
and
Development plans are not action-orientated and timespecific.
the priority and the schedule for the
responsible
release of land for development, thus
representations in the plan making
allowing
developers
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to
carry
out
F I N A L
R E P O R T
development at their own time, site
unapproved
and pace, resulting in urban sprawl,
guidelines which can be amended
leap-frog
where necessary without going through
development,
infrastructure mismatch supply.
and
between The
insufficient
plans
and
facilities,
and
the long process required under the
demand
and
TCPA.
Sequential
Approach
requires the adoption of more actionorientated
guide
and
vii)
time-specific
development planning. There should
Planners and decision-makers preparing development plans are not made to feel responsible and accountable.
be an in-built control in the release of The
land for development and appropriate development
are
of
development
plans
depend very much on the quality and
incentives given to ensure that growth and
quality
dedication of the people who are
properly
involved
integrated and channeled into more
in
the
formulation
and
approval of the plans, be they external
suitable areas.
consultants, government officers, or the vi)
politician decision-makers. They should
Development plans are too rigid or too vague.
be made to feel responsible and to be accountable to the people who will be
Development
Plans
and
planning
most affected by the outcome of the
guidelines should not be too rigid or too
plans and their decisions. On the other
vague. A plan which is too rigid does
hand, they should be able to take
not allow any room for innovative
credit if the plans or decisions create
planning on the part of developers and
the expected benefits and gains to the
consultants. On the other hand, if it is
people. A system of measuring and
too vague, it will not provide a clear guide
for
consultants
developers and
the
and
monitoring
their
responsibility
and
accountability of decisions should be
government
formulated.
decision-makers. Good planning also has to take into account changes in circumstances
and
situations,
viii)
and
guidelines and policies which are fixed will
create
problems
of
Inadequate analysis of the impact of development proposals during the plan formulation process.
stifling
development. The TCPA allows for
In the preparation of development
changes to the development plan, but
plans
the process required to do that is
planning
tedious
Many
proposals and strategies, there is often
using
no adequate impact or cost-benefit
LPAs
and have
time-consuming. resorted
to
and
in
the
options,
5-5
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formulation
of
development
F I N A L
R E P O R T
analysis of the proposals and strategies.
development,
This leads to poor decision-making in
facilities and services, traffic planning
the choosing of planning options and in
and
the approval of the development plan.
development
A
protection.
form
of
Strategic
Environmental
management,
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,
schools
and
between the Local Authorities and other departments and agencies in charge of roads and infrastructure
5-6
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and
and
and
other
economic
environmental
F I N A L
5.2 DEVELOPMENT MANAGEMENT Development
CONTROL
control
is
AND
the
R E P O R T
LAND
5.2.1
day-to-day
The Development Control and Land Management Process. The study looked into the following processes:
regulation and control of the development and use of land. Without development control development
planning
will
futile.
The Planning Permission Process
The
Section 18 of the TCPA prohibits
development plans are implemented mainly
any person to use any land or
by the actions of individual, corporate and
building if it is not in conformity
government developers, and thus all these
with the local plan. Section 19
piece-meal
prohibits any person to carry out
developments
be
a.
have
to
be
controlled, monitored and coordinated by the
any
development
without
the
relevant authorities so that they conform to the
planning permission of the LPA, and section 21 spells out the process for obtaining a planning permission
by
proposing
to
development.
any carry The
person out
any
activity
of
“development� under the TCPA is very widely defined, and includes the carrying out of any building operation,
including
the
demolishing of a building, and of any engineering, mining, industrial or similar operation, the making of any material change in the use of any land and building, and the subdivision and amalgamation of land. An application for planning permission is to be made to the LPA in a prescribed form which is to
accompanied
by
a
development proposal report and
development plans. The change of land use
a layout plan prepared by a
restrictions and the subdivision of land under the National land Code
be
qualified
(NLC) are also
person,
and
other
prescribed documents. If no local
included under this section.
plan
exists
then
notice
to
adjoining land owners has to be
5-7
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F I N A L
R E P O R T
served informing them of the right
standards adopted by the LPA,
to
the
object
to
development. objections
the If
proposed there
submitted
in
objections
submitted
by
are
neighbouring land owners, and
the
the
recommendations officer
of
prescribed form, the LPA has to
planning
hear both the objectors and the
technical departments, the LPA
applicant, before deciding on the
may
application.
application,
then
and
the other
approve with
or
the without
Section 22 spells out
the
procedures
for
the consideration of the planning application
by
the LPA. Where the
proposed
development involves
a
new
township of more than
10,000
population or an area
of
more
than
100
hectares, or the construction any
of
major
infrastructure
or
utility, or affects hill tops or hill
conditions, or reject it. The LPA,
slopes
however,
in
an
environmentally
cannot
approve
sensitive area, the application has
application
to be referred to the National
permission
Physical Council for advice. After
development
due consideration, which has to
approved structure plan or local
include taking into account the
plan of the area, or any directions
proposals in the structure plan
given by the SPC. However no
and
mention is made of the National
local
planning
plan,
any
guidelines
other
Physical
and
5-8
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for
an
if
the
planning proposed
contravenes
Plan
of
the
the
F I N A L
R E P O R T
Comprehensive Regional Plan in the
consideration
application
of
for
the
planning
permission. 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. b.
Variation Restrictions Land Use
of and
Conditions, Categories of
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,
Section 108 further states that
under section 119, to lands which contain
expressions
of
where any condition on the land
“padi”.
title is inconsistent with any by-law
Section 124 empowers the State
or restrictions affecting the land
Authority, upon the application of
imposed by any local authority or
the land owner, to alter of the
planning authority, the condition
category of land use of his land, to
remove
the
expression
shall
of
to apply to the land.
This process is carried out without LPA
or
local
extent of the inconsistency, cease
amend any expressed conditions. the
the
law or restriction shall, to the
the land title, or to impose and
to
and
authority or planning authority by-
“padi”, “rubber” or “kampong” in
referring
prevail
SPC.
5-9
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F I N A L
c.
Sub-division, Partitioning Amalgamation of Land
R E P O R T
and
Under section 146, a land owner can amalgamate his two or more contiguous lots, if the same set of
Under section 135 of the National Land
Code
(NLC),
any
prerequisite conditions is satisfied.
land
However in the amalgamation of
owner can sub-divide his land,
lands, the condition or restriction
with the approval of the State
or category of land use of any of
Director of Lands and Mines or the
the land can be changed by the
Land Administrator, as long as it
State Authority if necessary if
satisfies a set of conditions spelt
there
out in section 136 (1), which approval
planning
authority
obtained,
and
that
of has the
any
dissimilarity
between any of the original lots to
include the conditions that any necessary
exist
be amalgamated.
any been 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
d.
land in the process of sub-division.
hill
Similarly, under section 140, joint
gazetted
and
however, to excise any gazetted
vested in the name of each of the
hill land, and need not legally
land owners after partitioning. The of
are
State Authority has the power,
land so that each new parcel is
set
lands
protected from development. The
land owners can partition their
same
Excision of Hill Lands and Degazetting from Forest Reserves Under the Land Conservation Act,
comply with the Structure plan or
prerequisite
Local Plan. On the other hand, if
conditions as in section 136(1) has
there
to be satisfied.
is
between
any the
inconsistency
State
Authority’s
decision to excise a land from Hill Land and the proposal in the
5-10
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F I N A L
R E P O R T
Structure Plan or Local Plan in
e.
relation to that land, the decision of the excision will prevail.
The One System In
April
Stop
2007,
Centre
the
(OSC)
Ministry
of
Housing and Local Government Similarly the State Authority has the power to degazette
prepared
any
Local
Local Plan. Even the National
not
compliance
in
Government
Council,
directed all state authorities and
have
local
adequate enforcement means to ensure
the
the approval of the National
proposals in the Structure Plan or
may
on
Centre (OSC) system and, with
Forestry Act, not withstanding the
Plan
circular
implementation of the One Stop
forest land under the National
Physical
a
planning
authorities
to
adopt the new system.
the
degazetting of forest reserves or
The OSC is intended to shorten
excision of hill lands by the State
the time for the processing of the
Authority.
various applications for approvals of development by:
5-11
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F I N A L
i.
R E P O R T
increasing the number of
staff in the processing of the
coordinating monitoring
and
departments
iv.
allowing all the plans for development
to
submitted
processed
be
indecisions in the consideration of the applications by the committee;
too
many
unnecessary,
given a limited time frame
conflicting,
for
comments
the
stages
of
irrelevant and
sometimes
requirements from
the
and and
technical
departments;
replacing
the
planning
committee
with
a
OSC
too
many
committees
committee in every LPA.
departments
and
processing
and
considering the applications;
5.2.2
lack of staff in the processing of
concurrently, all
imprecise
quality;
processing, v.
and
applications, in both quantity and
involved in the processing,
and
unclear
the planning officers;
and requirements of all the
iii.
policies,
recommendations on the part of
the comments
relevant
development
plans and guidelines;
applications in the LPA, ii.
unclear
Weaknesses of the Present Development control and Land Management Process
unclear system and procedures of processing of applications, some steps are unnecessary, overlapping and/or redundant;
The weaknesses in the development control
and
land
the applicants and their agents are
management
processes, as spelt out in the Interim and
Technical
Reports,
can
be
summarized 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:
5-12
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F I N A L
R E P O R T
not competent;
planning officers who are involved in
interferences from politicians.
the daily processing of applications for development were not involved in the
The new One Stop Centre (OSC) system
preparation of the development plans
has reduced very much this delay by:
or briefed well on the details of the
increasing the number of staff in the
development
processing of the applications in the
guidelines.
plans
and
control
LPA,
coordinating and monitoring the
iii)
comments and requirements of all the relevant departments involved in the processing,
allowing
all
the
plans
for
The authorities, officers and decision-
development to be submitted and
makers, as well as the developers and
processed concurrently,
their consultants, should be proficient
giving a limited time frame for all
and
the stages of processing,
Approving authorities, officers and decision-makers do not feel responsible and accountable for the outcome of their decisions.
responsible
and
should
be
accountable to the people who are
replacing the planning committee
subsequently affected by the result of
with a OSC committee in every LPA. There are, however, still some teething and other problems which are being looked into by the Ministry with the feedback
from
departments,
the
consultants
various and
developers. ii)
There
Poor Understanding of Development Plans, Guidelines and the Planning Law in Development Control and Regulation. is
often
a
gap,
their proposals, recommendations and
poor
decisions.
understanding and misinterpretation of
The LPA is the authority
responsible
the law, policies, plans and guidelines
for
granting
planning
permission, and the State Authority is
by the LPAs when applications for
responsible
planning permission are processed and
category
considered. One of the reasons is the
for of
the
land
alteration
use,
varying
of of
conditions and restrictions of land,
5-13
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F I N A L
R E P O R T
excision of hill lands and “de gazetting”
some efforts have been taken towards
of forest reserves. Whereas in the
this, there is still a much
consideration for planning permission
room for improvement.
the LPA has to abide by the proposals
There
in the Structure Plan and Local Plan,
yet
no
concerted
effort
to
there is no such legal restriction for the
coordinate
all
State Authority to change the category
efforts or to install a
of land use under the NLC, to excise
uniform
“hill
electronic
lands”
under
the
Land
is
as
these
system
for
submission
Conservation Act, to de gazette from
and
forest
applications of planning
reserves
under
the
National
consideration or
of
Forestry Act. There should be greater
permission
transparency in the approval process.
matters for all LPAs and other
iv)
The appeal process takes too long
land relevant
departments. vi)
Although the objectors, as well as the
There is no adequate method to assess the impact of proposed development.
applicants, have a right to submit appeals to the Appeal Board if they are
A more precise set of criteria and
unhappy with the decision of the LPA in
indicators for sustainable development
approving or rejecting the applications
should be formulated, and a more
of planning permission, the process of
precise
being heard and considered by the
and
quick
method
of
evaluating the environmental, social
Appeal Board takes a long time and is
and economic impacts, as well as the
very costly to the parties affected.
costs and benefits of the proposed v)
development
The use of IT systems and the internet is not adequately coordinated.
under
consideration
should be made available. These will be
invaluable
effective
The use of appropriate computer and IT
for
responsible
decision-making
in
and the
development control process.
system and the internet will go a long way to reduce the tediousness, hasten
vii)
the process, reduce the uncertainties, increase transparency, and to manage and
up-date
planning
Officers in the administration of land are not well versed with the NLC and the TCPA.
and Offices in the Department of Land and
development data in the development
Mines, in charge of processing and
control process. However, although
advising on applications for alteration
5-14
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F I N A L
R E P O R T
of category of land use, subdivision,
authorities.
amalgamation, and other land related matters, under the NLC, are often not
ix)
LPAs do not consider the demand and supply situation in approving development.
specifically trained in land laws, land administration, and planning laws, and are also not in tune with the objectives
The LPAs and the State Authorities in
of
and
their granting of planning permission
and
and the alteration of land use category
orderly development. This has in some
from “agriculture” to “building” do not
cases led to decisions that are contrary
consider the situation of over supply of
to the laws and the development
development. They may be unable to
plans.
do this due to lack of updated supply
good
land
management,
administration good
planning
and viii)
No legal provisions for decisions on land applications to conform to the development plans.
demand
data.
The
resultant
overhang of housing and commercial floor space is due to over approval and over development. The NPP has noted
There are no provisions in the NLC, the
that “Future property overhangs should
Land
be
Conservation
National
Forestry
Act Act,
and for
the State
prevented
from recurring. It is
incumbent on approving authorities to
Authorities to have to comply with the
be
restrained
proposals of the National Physical Plan,
development applications and to be
The State Structure Plan or the Local
guided by projections of housing and
Plan in their approval of applications for
property demand based on realistic
alteration of category of land use,
population projections. Approval of
excision of hill lands, or degazetting of
land conversion should not be at a rate
forest reserves. There have been cases
faster
where areas zoned for agriculture or hill
projected demand for development
land in the structure or local plan are
land. In addition to the planning control
approved for alteration of the category
exercised by state governments and
of land use to “building” by the state
local authorities, it is important that the
than
in
five
5-15
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the
years
approval
ahead
of
of
F I N A L
private
sector
self
be the positive or proactive part, and need to
discipline and respond more sensitively
be looked into if the sequential approach is to
to
be adopted successfully.
state
also
exercises
R E P O R T
planning
contributing
projections.
cause
of
A
speculative
development is the lack of accurate, regular and transparent information on the housing and property situation available to developers and property purchasers.” x)
Quality and competency of agents are not adequately regulated.
This section looked into the procedures and practices of how development projects are
Some of the problems related to the development caused
control
by
process
incompetent
implemented after the plans have been
are
formulated and approved, and analyze the
and
findings of these processes from the Interim
irresponsible agents and consultants
Report.
who are supposed to advise and help the developers in the application for
5.3.1
planning permissions. The quality of
The Plan Implementation, Monitoring and Enforcement Process
work and the competency of the agents
should
regulated,
and
be a
monitored system
for
and
After planning permission, other plan
this
approvals and permits are required
purpose should be established by the
before
the
development
LPAs and the relevant professional
carried out. These include:
can
be
institutions and boards. 5.3
from the Local Authority (LA) as
PLAN IMPLEMENTATION, MONITORING AND ENFORCEMENT
required under the Street, Drainage and Building Act (SDBA),
Aside from the control of development under
the TCPA by the LPAs, we need to look into the
development projects are carried out after the control
can
Structural Plan submitted to the LA as required under the SDBA,
plans have been formulated and approved. development
Building Plan approval from the LA as required under the SDBA,
process, procedures and practice of how
Whereas
Road and Drainage Plan approval
be
Earthworks Plan approval from the LA as required under the SDBA,
considered as the negative arm of plan
implementation, this part can be considered to
Sub-division Plan approval by the State Director of Lands and Mines or
5-16
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F I N A L
R E P O R T
the Land Administrator under the
development. The adoption of the
NLC.
sequential approach calls for a more proactive role for local authorities and
Development projects are carried out
government
by private or government developers.
implement and manage their own
There are many government agencies
development
and departments at the State, Federal
responsive to the actual demand and
and
to optimize existing “brown field� sites.
Regional
levels
which
can
developers in
a
to
manner
plan, more
undertake development, such as the state
economic
corporations
development
(SEDCs),
development
the
regional
authorities,
departments
that
and
carry
out
development on behalf of the state or federal government. The local authorities are responsible to ensure that the development of the private developers as well as of the government
departments
and
agencies are carried out in an orderly manner
and
will
conform
to
the
development plans and comply with the
conditions
in
the
planning
permission. The TCPA, the SDBA and the NLC spell out the type of offences and the penalties that can be imposed if offences have been committed by the LPA and the State Authority. The Local Authorities are able to carry out
development
Government
Act.
under
the
Local
Authorities,
5.3.2
Local
being the LPAs of their areas, do not but
clearance
from
will
require
other
Plan and
The weaknesses in the implementation,
require planning permission of other approvals,
Weaknesses of the Implementation, Monitoring Enforcement Process
monitoring and enforcement process
the
include the following:
relevant
departments and authorities for their
5-17
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F I N A L
i)
R E P O R T
There is no control and coordination in the implementation of development projects.
discontinuity during the implementation and enforcement of the plans later on. ii)
The local authorities do not monitor or control the sequence and schedule of the construction / implementation of approved
projects
by
private
or
The local authorities and other government agencies do not play an active role in development.
Urban lands in Peninsular Malaysia are
government developers and agencies.
largely under private ownership. The
Development is often on an ad-hoc
local authorities and other government
basis, at the time, pace and site of
agencies
individual developers, resulting in such
have
to
play
a
more
proactive role in the acquisition and
ills as leap-frog development, urban
amalgamation of land in order to apply
sprawl and the overhang of developed
the Sequential Approach to redevelop
properties. Even government and utility
more appropriate sites like “brown
departments do not abide by the
fields” and inner-city areas, and to
structure or local plans programme, if
preserve “green field” areas. Other
any, and carry out their projects based
methods like Land Readjustment can
on the departments’ own budgeting
be looked into.
and implementation schedules.
This often results in situations of shortage
Penang has applied an Urban Renewal
or over-loading of utility services. The
Process
preparation
KOMTAR.
of
development
plans
in
the
This
development
however
has
to
of be
often relies on external consultants
assessed in order to eliminate the
while
and
inadequacies and to improve upon the
enforcement are carried out by the
success of such an approach. Penang
local council officers who are often not
should take the opportunity to adopt
directly involved in the tedious plan
the
preparation process. There is hence
(TOD)
often a gap, poor understanding and
development,
implementation
Transit
Oriented
approach
proposed
to
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planning
incorporating
monorail
5-18
Development
project.
and the The
F I N A L
R E P O R T
government should also play a more
The
supervising
officers
and
active role to conserve and revitalize
inspectors are short handed or
old heritage towns and cities like
inefficient; in most LPAs there are no
George Town.
planning inspectors, and hence offences and illegal development under the TCPA are not spotted.
iii)
Insufficient incentives given for developers to carry out development in more appropriate sites.
The charging and conviction of offenders through the court of law are tedious and time consuming; there are often delay for cases to
There is no, or not enough, incentives to
be heard and there is a long back
encourage developers to develop in
log. (there have been proposals to
more appropriate areas and to avoid
set up municipal courts to hear only
the encroachment into “green field” areas.
Local,
state
and
local authority cases);
central
governments should look into the giving
enough to create a significant
of incentives, which can be financial ones,
such
as
giving
discounts
The fines and penalties are not high deterrence to potential offenders.
in
development charges, taxes and fees,
There are often interferences by politicians.
or non-financial ones like transfer of development rights, giving higher plot ratios and densities, and fast-track approvals, in the adoption of the Sequential Approach iv)
This
Enforcement actions under the TCPA and the SDBA are slow and inadequate. is
inadequate
monitoring
of
offences and lack of enforcement taken under the planning and building laws. Reasons for the delays and inefficiencies include:
Some parts of the law and by-laws are not clear, out-of-date or are inadequate;
5-19
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F I N A L
This
Chapter
will
examine
the
R E P O R T
possible
The following paragraphs recapitulates the
incorporation of the Sequential Approach by
provisions
of
sustainable
urban
land
first examining the current legislation, policies
management through the encouragement of
and strategies that are already in place in
compact cities and limiting urban sprawl.
Malaysia that addresses some of the urban issues in the country. In particular, provisions for policies
and
strategies
concerning
i.
any
The National Physical Plan (NPP) The NPP strategies which are directly
similarities with the Sequential Approach shall
related to the policy of selective urban
be highlighted.
centres and concentration are as follows:
6.1
THE PLANNING LEGISLATION DEVELOPMENT PLAN SYSTEM
AND a.
NPP 2 - The planning of urban-
The Development Plan system of the country is
based economic activities shall adopt
thoroughly
the
well as
well covered and organized as
systematic, from the national level
concept
Concentrationâ€&#x;
down to the detailed local level in the form of the
provision
for
a
for
centres for all states.
the action area plan. In many of these policy documents,
of
more
sustainable urban form and land management has been outlined.
6-1
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„Selective
strategic
urban
F I N A L
b.
R E P O R T
NPP9 – Urban Conurbations i.
The
extent
of
conurbations
the
has
Committed Development.
Acceptable traveling time,
been
door to door, for journey to
demarcated as follow:
work (Kuala Lumpur
For the National Growth
conurbation - 45 minutes,
Conurbation
a
45
Regional Conurbations and
minutes travel time from
other State Capitals - 30
the employment centres
minutes).
of core cities. For
all
other
conurbations
a
As
Physical: buildings based on concentration.
30
Exclusion of Prime
minutes travel time from
Agricultural Areas (PAA) as
the employment centre
designated by the NPP.
of the core city. ii.
a
new
direction,
urban
use
of
policy
Exclusion of Priority Environmentally Sensitive
vacant
Areas (ESA) as designated
land within the present built-
by the NPP.
up area, rehabilitation and redevelopment of existing building
sites
shall
be
emphasized. The NPP proposes the use of several basic parameters for the purpose of delineating an edge to a conurbation. The use of designated parameters which have been set at the macro NPP level will guide and ensure
c.
an integrated and consistent
physical separation of the cities,
approach in terms of the future
towns and villages within the
delineation of all conurbations
conurbations shall be maintained.
within Peninsular Malaysia. Parameters
taken
NPP 12 - The individuality and
Measures:
into
The
development
limits
of
individual cities, towns and
consideration in the detailing of
villages
the delineation of conurbations
conurbations
have been: 6-2
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within
the shall
F I N A L
R E P O R T
circumscribe
the
horizontal
facilities shall be established
expanse
the
individual
within each conurbation to
of
cities. towns and villages.
promote greater efficiency in
The integrity of relationships
public investments and
between the core areas of
use of public facilities
individual
cities
peripheries
and
the
their
shall
be
maintained.
While
inter-city
movements
within conurbations shall be facilitated
by
mass
transit
systems, land use planning in the conurbations shall aim at minimizing the necessity for inter-city travel.
Structure
Plans
and
Local
Plans shall encourage infilling and the use of brownfield sites within the urban areas, to better
utilise
committed
existing physical
and
ii.
and
social infrastructure.
The policies in the National Urbanization
Local planning shall create
Policy that are related to the city centre
scope for urban regeneration
development or towards any of the inner
in the core cities not only for
city growth are listed below. The NUP re-
the
emphasizes the need for compact urban
purpose
growth purpose
of
economic for
the
growth
of enhancing
the
revitalization through the redevelopment
but
also
Local
planning
by
giving
shall
public transport.
be
sensitive to the conservation of
historical,
cultural
architecturally areas
to
and
outstanding enhance
the
character and uniqueness of individual cities.
A hierarchy of infrastructural, social
and
priority
to
urban
of the inner cities and the provision of
living environment.
The National Urbanization Policy (NUP)
recreational 6-3
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F I N A L
R E P O R T
Table 6.1 : NUP – City Centre Policies No
Policy
Statement
1
NUP 5
2
NUP 6
Optimal and balanced landuse planning shall be given emphasis in urban development: Measures: i. Ensure development is concentrated within urban growth limit so as to create a compact city; i. Promote housing development within the urban centre or near to activity centres with access to good amenities and transportation; Urban Development shall give priority to urban renewal within the urban area: Measures: i. Implement infill development at potential areas; ii. Identify and prepare an inventory of brownfield areas; iii. Plan and prepare the re-development programmes for brownfield areas; iv. Promote urban regeneration for areas potential for development; v. Rehabilitate polluted areas prior to development; vi. Establish an agency responsible for planning and managing urban renewal; Encourage private sector involvement through the provision of incentives and joint venture programmes with the government.
3
NUP 15
iii.
An integrated, efficient and user-friendly public transportation system shall be developed. Measures: i. Prepare a public transportation master plan at all levels of urban centres; ii. Integrate public transportation system in landuse planning by implementing the concept of Transit Oriented Development (TOD)
State Structure Plans Therefore in terms of urban form and The State Structure Plans are policies
land management, the incorporation
and
the
of the compact city or limitation of
national policies such as the National
urban sprawl has been examined and
Physical
National
the following paragraphs relate to the
Urbanization Policy into more detailed
provisions made in the Structure Plan of
plans at the state level.
These plans
Penang State, in which George Town is
would spell out in greater detail the
located, and the State Structure Plan of
strategic actions that will be needed in
Negri Sembilan, in which Seremban is
order that the policies at national level
the State capital.
strategies Plan
that and
transcribe the
shall be reached.
6-4
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F I N A L
a.
R E P O R T
The Penang State Structure Plan
development
or
development
within already built up areas or An examination of the
town centres are listed as the
policies and strategies
table below.
within
the
made
Plan
was
and
statements
the found
pertaining to inner city Table 2.2 :
Penang State Structure Plan – Contents related/implied with Sequential Approach.
Item 1
Statement in Plan and Reference Page xvi – Sectoral Policy: DS 19 Giving priority to comprehensive infill development in the main towns and other main centres.
2
Page 2-28 – Directions of Growth – 2.5.9 (i) Towards More Sustainable Land Use: “……It is estimated that there are 4,500 hectares of land within existing town centres that has the potential for development. Therefore, any applications for planning permission shall only be considered for priority development areas that have been identified….”
3
Page 3-3, Land Use Strategic Plan – 3.3.1 Priority Development Areas “…..are already built up areas. For these areas, the objectives are to optimize land use and existing infrastructure….”
4
Page 4-10, Policy DSU7 – The development of Land until 2020 shall optimize priority development areas as well as new areas to be identified. Policy DSU7 – L2 Encourage integrated infill development, urban renewal, redevelopment and adaptive reuse in town centres, dilapidated areas, abandoned areas, unproductive areas, and areas outside of heritage zones. Policy DSU7 L3 Encourage high density developments on the island especially in areas along transport (monorail) routes,….” Policy DSU7 L4 Giving emphasis and priority of development into built up areas through the Sequential Approach, as follows:
6-5
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F I N A L
R E P O R T
Giving priority to development in areas of Rank 1 with focus on existing built up areas that have public transportation and infrastructure facilities;
Giving priority to Rank II built up areas and new areas that have transportation and infrastructure facilities …..”
Policy DSU7 L6 “Encourage high density infill development along the monorail transport routes……” Policy DSU7 L7 Land use planning shall be integrated with traffic planning , planning for public transportation and social planning. 5
PAGE 4-51, DS 18Commercial floor space shall be identified based n the hierarchy of centre; DS1 8 L2 Targetted commercial floor space needs by 2020 in identified centres of hierarchy (followed by a table on the allocation by hierarchy of centres) Page 4-51, DS1 9 Giving priority to infill development in main town centres and other identified centres; DS1 9 L1 “…feasibility studies to determine the scale and distribution of commercial floor space;….” Page 4-52, DS1 9 L2 Offer commercial floor space based on demand to avoid over supply DS1 9 L3 To implement commercial development through infill DS1 9 L4 Allowing and encouraging the change of use of buildings
It can be concluded that there are already statements pertaining to infill development
through
the
use
of
sequential approach being specifically mentioned in the policies. However, as extracted above, much of the policies on infill and town centre development refers to the commercial sector.
6-6
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F I N A L
b.
R E P O R T
The State Structure Plan of Negri Sembilan
Table 6.3 :
Negri Sembilan State Structure Plan – Contents related / implied with Sequential Approach
Item
Statement in Plan and Reference DRS NEGERI SEMBILAN 2001-2020
1
Page 4-2-4 – Policy: GT-DU2 The physical development of the State shall be guided within 4 categories: i.
Zones suitable for development;
ii.
Zones that can be developed with conditions
iii. Zones unsuitable for development; iv. Zones prohibited from development. 2
Page 4-2-5 – Policy : GT-DS5 Encourage “infill” development in town centres in areas that are not developed, and redevelopment of dilapidated areas in town centres.
3
Page 4-2-14 – Policy : GT-DU5 The development of Town Centres shall concentrate on strategic growth nodes based on the clear hierarchy and function/theme of special centres.
4
Page 4-2-18 – Policy : GT-DS13 Optimize
urban
landuse
by
”infill”
development
and
control
the
development of new centres. 5
Page 4-4-7 – Policy : PD-DS2 Ensure the balanced distribution of floor space; additional floor space shall be encouraged within existing town centres.
Item
Statement in Plan and Reference Structure Plan of Seremban Municipal Council 1998-2020 Page 3.1-5 – Policy : KP 5
1
The development of town centre through “infill” shall be adapted with the surrounding developments. Page 3.5-5 – Policy : PN 4
2
The development of commercial complexes shall be encouraged to optimize the town centre land use.
The table above also indicates clearly
approach or any other approaches
that provisions have been made for the
towards the limitations of urban sprawl
incorporation
and for a more compact city.
of
the
sequential
6-7
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F I N A L
iv.
R E P O R T
The Uniform Building Bye Laws
(a) in respect of residential buildings, not less than one-
For
purposes
of
encouraging
developments and
infill
third of the built-on area of
redevelopment
the building lot; and
within city centres where lot sizes are
(b) in
limited
the
buildings
the
residential purposes, not less
preservation of the existing building, the
than one-tenth of the built-
UBBL (as at July 2006) may have some
on area of the building lot.”
or
even
redevelopment
where involves
respect used
of
other
for
non-
Even if the building is abutting a street and has no backlane, the UBBL still requires that a space be provided at the back. For an existing building which has heritage values and that has been identified for adaptive re-use under the Sequential Approach, this section may prove prohibitive. restrictions.
Older buildings within city
Section 33 states the following:
centres do not have setbacks and
“ Section 33. Space about buildings on
often are built to line to the lot
lots abutting a street and having no
boundary or abutting a street. The re-
backlane. For the building on a lot
use of these buildings for commercial or residential
use
(as
encouraged
abutting
in
street
and
having
no
backlane, the open space shall be
implementing the Sequential Approach
situated at the rear of the building and
especially within conservation zones)
shall extend across the full width of the
should be made possible.
lot.”
Section 32 (1)(a) and (b) states the
Therefore, in order that the Sequential
following:
Approach be possible, the Uniform Building
“ 32. Space about buildings abutting a
Bye
Laws would
have
to
looked at in greater detail to allow for a
street and a backlane. (1)
a
more
The open space for buildings
compact
development
approach, but one which would not
abutting a street and backlane
jeopardize or compromise on safety.
shall be –
6-8
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F I N A L
v.
R E P O R T
Strata Titles Act 1985 (Act 318)
A network of good roads that provide good connectivity from
The Strata Titles Act 1985 (Act 318)
the city to the peripheral areas
underwent an amendment in 2006 with
The developer is able to sell at a
regards to section 6. This section states
much higher price the land
that :
which was originally much cheaper due to the agriculture
„Any alienated land having two or more buildings held as one lot under final title (whether Registry or Land Office title) shall be capable of being subdivided into land parcels each of which is to be held under a strata title or as an accessory parcel‟.
status previously; Moreover, the developer is able to meet demand for exclusive properties that has the perceived elements of safety, greater privacy and having a home on some land.
This amendment literally allows for the development
of
landed
strata
developments,
just
like
other
landed
properties.
any
However,
the
differences are that:
Formation of a Management Corporation (MC)
No need for the surrender of roads to the Local Authority
Able to develop a gated Thus, the amendment to the Strata Titles
development based on a
Act
legislative provision;
has
development
encouraged in
the
increased
outer
areas,
the
compared to previously, when strata
has
developments were confined to city
encouraged developers to open up
centres, due to the higher densities and
new areas for strata landed properties
non-landed nature.
for the following reasons:
implications on urban sprawl will have
In
such
amendment
a
circumstance, to
the
Act
The Act and its
A high demand for such
to be looked at in further detail, and
properties from buyers
because it is within the realm of
Current Lifestyle choices
another
Ministry,
collaboration
and
further
discussions,
coordination
will
have to be undertaken in order that
6-9
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F I N A L
R E P O R T
urban land is better managed and the
city centres may be prohibitive on the
objectives
development costs. It may be that to
of
sustainable
urban
development is achieved.
encourage city centre redevelopment as well as to achieve the goals of sustainability and greater use of public transport, car parking requirements for city
centre
developments
for
commercial, residential or institutional uses, be lowered.
These regulations
can be made under section 102 of the Act.
vi.
Local Government Act 1976 (Act 171) The
Local
Government
Act
1976
provides for the administrative and
6.1.1
Summary
management powers and conduct of business
of
the
local
authority
It can be inferred that based on the
in
managing its area. Under this Act, the
study
undertaken
local authority has the power to make
elements that are pertinent to the rest
by-laws, rules and regulations (Part XIII,
of the study and should be considered
section 102) which are to be confirmed
henceforth are as follows:
by the State Authority (section 103).
i.
ii.
city centre development will be the set
Malaysia
The Sequential Approach as used in the UK has been brought about
As city centre
through strong political support and
on
political will;
land values are very high, development
iii. There are already statements of
costs will naturally be higher than in other areas.
in
car
regulations
parking requirements.
provision
regarding sequential approach;
One of this that pertains to the issue of to
several
There are no clear and succinct legislative
powers
herewith,
policies and strategies towards city
The imposition of car
centre
parking standards and requirements for
development,
6-10
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sequential
F I N A L
R E P O R T
approach and transport oriented
commercial
developments
infrastructures are fully utilized.
Physical
in
Plan,
Urbanization
the the
Strategy,
National
floor
space),
and
existing
National and
the
The
Sequential
Approach
in
planning
State Structure Plans of Penang and
accentuates the provision of the Structure
George Town;
Plans and Local Plans in that development should be undertaken within most suitable areas, from the city core outwards, and
6.2
The Sequential Approach, Strengths and Weaknesses in the Malaysian context.
preferably transport
within
areas
of
connectivity.
good
The
public
Sequential
Approach in planning and development has To recapitulate, the Sequential Approach to
been in practice in the UK since 1996 through
Planning and development is a method of
the Planning Policy Guidance (PPG)
monitoring
the
issued by the Department of Environment,
that
Transport and the Regions, on Town Centres
physical development meets up with demand.
and Retail Developments, and then followed
The approach also ensures that "brownfield"
by PPG 3, on Housing, in 2002.
physical
development
in
planning system and process, ensuring
No.6
sites as well as previously developed sites, be given
priority
for
development,
over
Local
planning
authorities
in
preparing
"greenfield" areas. In this way, urban sprawl is
development plans should adopt a systematic
minimized,
there
development
is
no
products
oversupply
in
approach
to
assessing
(housing
or
potential of sites, and the redevelopment
6-11
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the
development
F I N A L
R E P O R T
potential of existing buildings, deciding which
locations be considered for key town centre
are most suitable for housing development
uses. Where development proposals in such
and the sequence in which development
locations fall out with the development plan
should take place.
framework, it is for developers to demonstrate that town centre and edge-of-centre options
In identifying sites to be allocated for housing
have been thoroughly assessed. Even where a
in local plans and UDPs, local planning
developer, as part of a sequential approach,
authorities should follow a search sequence,
demonstrates an out-of-centre location to be
starting with the re-use of previously-developed
the most appropriate, the impact on the
land
areas
vitality and viability of existing centres still has
identified by the urban housing capacity study,
to be shown to be acceptable. Furthermore,
then
new
the development should be easily accessible
development around nodes in good public
by a choice of means of transport and not be
transport corridors. They should seek only to
dependent on access solely or mainly by car.
identify sufficient land to meet the housing
The majority of customers and staff in the
requirement set as a result of the RPG and
forecast catchment area should be served by
strategic planning processes. In doing so they
networks for walking and cycling and regular
do not need to consider all the land in their
and frequent public transport services.
and urban
buildings
within
extensions,
urban
and
finally
area: they should not extend the search further than required to provide sufficient capacity to meet the agreed housing requirement. In
determining
the
order
in
which
sites
identified in accordance with the criteria set out , the presumption will be that previouslydeveloped 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. Only if it can be demonstrated that all town centre
options
have
been
thoroughly
addressed and a view taken on availability, should
less
central
sites
in
out-of-centre 6-12
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F I N A L
R E P O R T
In preparing development plans, planning
related developments, such as commercial
authorities should take account of the broad
leisure
forecasts of retail demand, deficiencies in
consultation with business interests and the
retailing provision (if any), and how the retail
local community, seek to agree a framework
sector is likely to respond to that demand over
for promoting the retailing and commercial
the plan period, by reference to location and
leisure roles of town centres, co-ordinated with
type of retailing. Likewise, they should take
their policies on transport, car parking and
account of the market demand for other
regeneration. This should lead to a town centre
developments.
They
should,
in
strategy involving the private sector including retailers, leisure operators, property owners and investors, and infrastructure providers, setting out the scope and policies for change, renewal and diversification. Planning authorities should identify and build on the essential qualities of the town centre and seek to ensure that it meets the needs of the community it serves. They should take account of the dynamic nature of the retail and leisure industries and the need to make good use of existing infrastructure investment in town centres. In this way, the town centre strategy
can
then
be
reflected
in
the
development plan. 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 ;
6-13
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F I N A L


R E P O R T
the need to retain and improve open
should maintain time series data on shopping
space and recreational opportunities;
patterns set up by former authorities.
the opportunities for housing and offices,
The validity of any assessment will depend
particularly in mixed-use developments;
particularly
and scope for adding to the quality of the
relevance of the information obtained. It is
urban environment.
therefore important for an authority to ensure
on
the
quality,
quantity
and
that data are as comprehensive, accurate,
Plans should be soundly based on up-to-date
and up-to-date as possible. Relevant data
information. Retailing policies and proposals in
might include population change, economic
development plans should therefore be based
growth or decline, retail floor space, shop
on a factual assessment of retail developments
counts, expenditure patterns, car parking,
and trends. Data on the quality, quantity and
accessibility, pedestrian flows and consumer
convenience of retailing in the area and the
attitudes.
potential capacity for growth or change in the shopping centres will be important to ensure
Based
plan policies and proposals are properly
mechanisms and implementation tools of the
informed.
Sequential
Where
appropriate,
authorities
on
the
understanding
Approach,
the
of
Study
the team
formulated and itemized the strengths and
6-14
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F I N A L
R E P O R T
weaknesses of the approach in light of the
planning.
situation in Malaysia.
compact city developments as against
The following are the
findings:
This
encourages
the
the sprawling city development which has a larger take up on land resources.
6.2.1
Strengths Sequential Approach implemented in
One
of
the
of
the United Kingdom has also meant
implementing the sequential approach
that many buildings worthy of heritage
is that priority of development is given
has
to the existing town centres. As cities
rehabilitation
into
everywhere have developed in the
These
indirectly
past
greater professional skills and creativity
towards
towards
advantages
a
sprawling
suburbia,
the
approach
provides
the
with
city
city
or
sequential
been
revitalized
have
amongst
through
commercial
planners,
use.
encouraged architects,
a
mechanism
to
encourage development
back
into the city centres. Where
once
city
centres
were
quiet
and devoid of activity once
the
workers
leave the city for their suburban homes,
designers,
the city centre can now become alive
Sequential Approach in the United
and
vibrant
also
use
of
meant
the
new
Kingdom
housing
and
developments are more orderly, in that
commerce remain within the centres.
developers are encouraged to build
The city centre is thus revitalized.
within city areas before they “leapfrog�
if
has
The
the
developments
with
etc.
that
into greenfield areas, such as what The
new
developments
within
city
happens in most cities of the world.
centres have also been in the form of mixed developments where commerce
The
and residential use can be developed
development of the city has also
within a single plot of land.
Vertical
meant that there is a lack of wastage
mixed use maximizes land use and is a
on existing infrastructure costs and a
complete
turnaround
the
saving in the long run in terms of
traditional
single
use
infrastructure
zone
from land
compact
6-15
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growth
cost
and
provision.
F I N A L
R E P O R T
Developments of city centres make use
people who will reside in the city areas.
of existing infrastructures and utilities,
Such a factor is almost non-existent in
whereas new developments on the
many cities in Malaysia. Even if there
outskirts meant that new infrastructures
are public transport, these would not
have to be laid out, incurring greater
be integrated nor have an extensive
pressures
service coverage.
on
limited
resources.
Developing within city areas means taking advantage of already available
To initiate the Sequential Approachâ€&#x;s
resources
utilities
implementation in any city in the
and
country, a pilot project in the city
drainage) as well as communications
centres should be initiated to provide
and transportation networks.
an example of the project viability. It is
in
(electricity,
the water,
form
of
sewerage
usual that a pilot project be initiated on 6.2.2
Weaknesses
government land wherever possible. This may be a limitation as most
For Sequential Approach to really be
state/government
attractive and work towards a win-win
centres are all taken up. There could
situation
be
for
the
private
sector,
possibilities
lands of
within lands
city for
government (city authorities) and the
redevelopment and these could be
community, one essential factor is that
initiated as pilot projects to use this
of a public transport system. The areas
approach.
to be developed in the city centres must be adequately supported by a
In
network of public transport system that
sought after by developers when new
is integrated.
ideas
Accessibility form any
Malaysia, or
incentives
are
development
always policy
point to the site must be available, not
approaches are introduced. In the UK,
just to attract people coming into the
government incentives were initiated at
area to shop or work, but also for the
the very beginning of the Approachâ€&#x;s
6-16
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F I N A L
R E P O R T
implementation. Once developers saw
well as development trends.
Data
the viability of city centre revitalization,
collection
close
no further incentives need be given.
monitoring
These initial incentives have become
development
policies
then.
and construction to completion. Such
However, for this approach to be
practices are still at the infancy stage in
introduced
most cities in Malaysia.
and
standards
in
by
Malaysia,
much
will of
support
the
the
trends
applications,
of
approval
incentives will have to be initiated. Incentives such as reduction of car
Most local authorities in the country
parking facilities within the proposed
have
development,
database that can be interactive and
may backfire when
yet
to
includes
build easy
up
proper
there is a lack of comprehensive public
that
transport. Thus one incentive may be
Admittedly,
linked to a lack in another.
established local authorities have such
only
the
data
a
retrieval.
larger
more
database facility which has yet to be Another weakness in the Approach,
examined in terms of effectiveness in
which may also be its strength is the
monitoring and data retrieval that
need
could
for
close
monitoring
of
support
and
be
designed
development applications so that there
towards the implementation of the
is
Sequential Approach.
sufficient
control
in
the
implementation of the Approach as
6-17
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F I N A L
R E P O R T
Many of the countryâ€&#x;s Structure and
There will also be opportunities to
local
detail
preserve and rehabilitate buildings as
implementation strategy to achieve the
well as areas of heritage value. As such
objectives of the Sequential Approach.
detailed
For
work,
should be formulated so as to guide
further details of the local plan must be
potential developers on the design of
formulated. These should contain even
the buildings for modern day use. Thus,
more details such as the identification
this effort will help generate
of
plans
sequential
particular
lack
the
approach
lots
to
that
developed/redeveloped
can
be
creation of
within
the
centres.
sequential approach strategy,
development
guidelines
the
lively and vibrant city
the
permissible plot ratios, the allowable
Should the sequential approach be
densities, setbacks, height of buildings,
implemented throughout the country, it
commercial/residential mix ratio, car
will be an even greater opportunity to
parking standards, the entry and exit
expedite
points
implementation of a comprehensive
of
the
redevelopment
plot, to
etc.,
be
If
the
undertaken
integrated
the
development
system
of
and public
includes a historic site or building, then
transportation as the two goes hand in
more details need to be formulated so
hand and is systemic of one another.
that any developments will not be in contradiction with the Structure or local plan.
All these details will have to
worked out within the current costs of land, development costs, current fiscal policies, etc. 6.2.3 The
Opportunities above
weaknesses
in
the
Malaysian Planning and management system allows further opportunities for improvement.
Thus there should be
more effort to formulate
detailed
development
guidelines for
city
centres
include
and
which
height
densities, plot ratios, setbacks and built to line, vertical mix development ratios, parking exemptions, etc. 6-18
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F I N A L
6.2.4
R E P O R T
Threats / Challenges
Another element of the limitations of the sequential approach would be the
As
earlier
mentioned,
one
of
the
lack of community facilities within city
shortfall of the Approach should it be
centres to support a large and mixed
accepted for implementation in the
population that would be living therein.
country is the high cost of land in city
Facilities such as schools, parks and
centres, which will off set the profit
religious facilities shall be difficult to
margin of potential developers.
This,
provide unless there is a change of
coupled with large hinterlands which
policies by other ministries, such as
are privately owned surrounding many
multi-storey school buildings with roof
cities, makes development outside of
top recreational facility.
cities much more easier and
profitable.
The
Malaysian preference for landed
properties
another
factor
development
is for
outside
of
city centres. The implementation of the Approach in the UK saw great political commitment from followed
policy
makers,
by
extensive
implementation
by
local
councils in the form of guidelines and incentives (initially).
To
As such, strong
enable
the
approach
to
be
implemented, further examination of
political commitment from the top
guidelines
politicians will be required should such
on
undertaken.
a strategy be implemented in the
restrictions
country. However, from the experience
developers There
imposed
on
must
are
be
many
developers
(such as the compulsory building of low
of the development plan system in
cost housing) to enable them to build
Malaysia, there still lacks strong political
according
will and support, despite the fact that
to
the
Approachâ€&#x;s
strategies.
these plans would have gone through the political processes of approval and
Currently, traffic management in city
acceptance.
centres have broken up communities
6-19
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F I N A L
R E P O R T
living in it. One way systems in cities like George
Town,
Seremban,
Kuantan,
Batu Pahat, Alor Setar, etc., which have been
implemented
to
reduce
congestion, have actually broken up communities. The roads have become wider and more difficult to cross; the continuous traffic flow has also forced many residents to stay on their side of the road, as it becomes too dangerous to cross the road to meet neighbours.
Table 6.2 : Summary of the SWOT Analysis S T 1. 2. 3. 4. 5. 6. 7. 8. O
P
R E
N
G
T
H
S
W
Compact city mixed development orderly growth Towards safe city savings on infra cost Greater accessibility Towards sustainability Re-vitalisation of heritage buildings P
O
R
T
U
N
I T
I E
E
A
K
N
E S
S E
S
1. Lack of incentives 2. Public Transport 3. Transport network 4. Lack of government/ municipal land 5. No monitoring of development 6. Lack of sufficient control 7. Lack of database 8. Detail implementation strategy to achieve policies
S
T
1. Creation of development guidelines for developers High densities Built to lines No parking provision Mixed development 2. Preservation/Conservation of heritage building in City Centres 3. Promotion/ upgrading of public transportation services 4. Re-vitalisation of City Centres
H
R
E
A T
S
1. High land cost in City Centres 2. No political commitment 3. Huge private owned land bank outside and inside City Centres 4. Malaysian preference for landed property 5. Restrictions for development by developers 6. Lack of community facilities to sustain city living 7. Traffic management in City Centres breaks the community.
Source: Study Team
6-20
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F I N A L
6.3
i.
R E P O R T
Criteria Required For Implementation of the Sequential Approach
such as the One Stop Centre alone will not work as the OSC applies to all development applications regardless of
Need for Strong Political Will
location.
Fiscal incentives as that
From the analysis of the
two
cities‟
growth made earlier and
the
SWOT
analysis, it can be implied
that
the
most
important
criteria
for
the
successful implementation the
of
Sequential
Approach
is
political
will.
Without political will, most developers will not support the idea
affecting company taxes, or transfer of
nor will any implement such as a
development rights should be further
strategy. The bottom line of the private
explored. Other simultaneous controls
sector is profits. Any new policies that
such as that of “pioneer status” should
affect the profit margin of companies
be studied for its feasibility.
will be unpopular, which will in turn
these are all related to political will, as
affect political support. Thus, only if
fiscal incentives are only awarded by
politicians in the country well and truly believe
in
the
importance
the
of
Ministry
of
Finance
and
Bank
Negara.
sustainable urban management, will there be strong political support for the
iii.
implementation of the Approach. ii.
Again,
Availability of an Integrated Transport System For the Sequential Approach to be
Fiscal Incentives
implemented successfully in the country In line with this, another element for the
and
within
the
major
cities,
the
Approach to work will be the kinds of
availability of an integrated public
incentives to be given out. Incentives
transport system is pertinent.
Easy
accessibility of the development with 6-21
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F I N A L
R E P O R T
areas from outside the city as well as
the Sequential Approach is to avoid an
inside, would be one of the factors that
oversupply of properties.
would make the development viable. Another
major
requirement
for
v.
implementation would be that there must be clear implementation and execution
strategies
that
For the Sequential Approach to first
are
take off, there must be extensive state
transparent and readily available for the
public.
elements
These
that
Sequential
are
would
or local government lands or even
important make
Approach
brownfield sites for projects to be
the
implemented.
readily
These areas could be
first offered as prime development
understood and accepted by those
areas for pilot projects for private
who will implement as well as execute the development plans.
Availability of State / Local Government Land and Brownfield Sites
developers
These would
to
undertake
and
showcase the success of the Sequential
include not just the developers but also
Approach.
the utility companies and agencies,
are
and other external departments.
in
Unfortunately, such lands
very
short
supply
in
most
Malaysian cities, as a majority of the land ownership are in private hands.
iv.
Comprehensive and extensive data base and close monitoring The local authorities must also be prepared
with
a
sound
and
comprehensive data base to manage and monitor the implementation of the Approach. Data such as the locations of
the
preferred
sites,
ownership,
development rights and guidelines, all must be made available.
Further to
that, once an application has been received,
the
progress
of
the
application from planning approval to construction and completion must be closely monitored.
vi.
This is so that the
Amendments to Some Legislation
data on demand and supply will be
Some legislation need to be amended
available as one of the objectives of
in order that the Sequential Approach can be implemented effectively. Some of these include the following: 6-22
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F I N A L
a.
R E P O R T
Amendments to the Town and
Country Planning Act 1976, especially pertaining to Local Plans and Special Area Plans. More details such as detail design
guidelines will
have to be
included which shall be based on property price analysis. Currently, most Local and Special Area plans lack the data
collection
and
analysis
on
property prices and trends; b. Amendment to the Uniform Building Bye-Laws, especially with regards to building design. The UBBL will have to be
more
flexible
and
allow
for
performance based standards rather than prescriptive regulations; c. Strata Titles Act – The recent amendments to allow for
landed
strata
properties
developments
as will
encourage for more gated communities in areas outside of city centres.
This Act will
have to be re-studied and address the issue to allow and
encourage
intensive
for
more
developments
in
city centres.
6-23
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F I N A L
R E P O R T
6.4
PROSPECT OF THE SEQUENTIAL APPROACH - CONCLUSION
From the studies made above, it can be inferred that the Sequential Approach alone may not be sufficient to manage urban growth and avoid sprawl in Malaysia. The Sequential Approach was first formulated to address the property overhang in many cities in the UK. However, as illustrated in this study, property overhang is not such a major issue in the city of George Town, although it has been an issue in the city of Seremban, due mainly to land speculation.
The example of the cities of
Seremban and George Town also indicated that the Approach may be an inadequate tool for cities of different sizes, history and urban growth morphology. Thus, a look at other more comprehensive
approaches
needed.
6-24
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will
still
be