Asian Social Science

September, 2008

Planning Principles and Control Mechanisms of

New Town Development in Malaysia
Dasimah Bt Omar
Faculty of Architecture, Planning and Surveying
Universiti Teknologi MARA
40450 Shah Alam, Malaysia
E-mail: [email protected]
Abstract
There is no clear-cut definition of constitutes new towns. The notion of self-containment is rightly seen as central to
many new towns and often been one of the underlying objectives. References on planning principles and control
mechanisms regarding new town development in Malaysia are very limited. Therefore, the perception survey is to
identify the planning principles and control mechanisms of new town development in Malaysia from the perspective of
two different groups of professional town planners. The findings showed that there is an urgent need to properly define
new town and to clearly spell out the planning principles and control mechanisms as to the requirements of new town
development. There is a strong need for an integrated national policy, strong need for special development control
mechanisms, moderately strong need for a separate format for preparing the Development Proposal Report, a moderate
need for special planning standards and some support for revising the present Town and Country Planning Act so as to
satisfy the new town development.
Keywords: New towns, Perception survey, Town planners, Planning principles, Control mechanisms
1. Introduction
The new model of urban residential development in Britain known as new town was brought into the English Planning
and Development concept by the 1946 and 1965 New Towns Acts. Under this Act, New Town Development
Corporations were appointed and financed by the central government to plan and create new towns (Morris:1997). The
population size of the new towns varies. In Britain for example, the Reith Committees optimum population was
30,000-50,000 (Cullingworth and Nadin: 1994). Howard suggested 32,000 people (Hall: 1990). Building new towns is
one way of coping with population growth and migration.
Malaysia has had more than three decades of experience in developing new towns. The first new town was Petaling
Jaya which begun developing in 1954 to cater for the spill over of Kuala Lumpurs population. Since the
implementation of New Economic Policy in the early 1970s more than 100 urban fringe new towns were developed. In
1980s the government implemented the concept of new towns in regional planning development schemes to balance up
the rural economic potential and to reduce the rural-urban migration. In Malaysia the planning functions are defined in
the Town and Country Planning Act (Act 172) and its subsequent amendments. However, there is no comprehensive act
specifically governing the new town development. There is a need to develop planning principles and control
mechanisms to be used by the federal, state and local government to regulate the activities related to new town
development.
2. Aim and Objectives
The aim of this research is to identify the planning principles and control mechanisms of new town development in
Malaysia.
The objectives are as follows:
(a) To identify the current planning principles and control mechanism of new town development from the perspective of
planners from the public sector
(b) To identify the current planning principles and control mechanism of new town development from the perspective of
planners from the private sector
(c) To propose new planning principles and control mechanism of new town development in Malaysia
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3. Methodology
Questionnaire survey was sent out to 120 town planners, 60 each to public and private town planners. These 60 public
town planners were listed based on the list from the Federal Department of Town and Country Planning. While the
names and addresses of 60 private practice town planners were based on the record of registered planning firms with the
Malaysian Institute of Planners. Since it was intended to cover the perceptions of town planners from various parts of
this country, the postal service was decided to be used in sending out and receiving of the questionnaires. The
questionnaire consist of ten open-ended questions with an option of yes/no answers used, which needed further
elaboration from respondents. The questions focused on the present development control measures in new town
development, laws, principles and guidelines and how they defined a new town. Thirty nine per cent (39%) of the
total were returned. Out of those the respondents from the private sector totaled up to fifty one per cent (51%) while
from the public sector Forty nine per cent (49%) questionnaires per cent were received from planners attached to the
private sector. There were town planners who gave only option answers without elaborating the specific questions.
4. Analysis
The open-ended questions answered were analysed using segmentation factors where the perceptions were grouped into
various segments based on the criteria set by the study.
4.1 The understanding of a new town in the Malaysian context
The first question was How do you perceive todays understanding of a new town in the Malaysian context? This
question was aimed at identifying the planners interpretation of a new town as understood locally. In the Malaysian
context there seem to be conflicting interpretations of a new town. The public were more exposed to the common
statement of a new town in the press, as a relatively large new mixed development, close to or abutting the existing
town boundary. The developers of these big scale developments used the word new town to establish an identity. On the
other hand, the local authority seemed to accept and adapt it to the situation. So when this question was answered by
professionals the interpretation of a new town in the Malaysian context can be defined more clearly.
In the survey form six statements relating to the understanding about a new town in the local context had been listed for
the respondents to select and they were also given space to write down their opinion if none of those statements met
with their perception. The selection could be more than one statement from the list. The six statements listed were as
follows:
(a) a self-contained new development
(b) a large scale new development
(c) a large scale mixed new development with targeted population of about 30,000 or more
(d) any new shop house or shopping complex development
(e) any new house and business centre development
(f) any new industrial development
From the survey it shows that the new towns seem to have many interpretations. The analysis was that 53 per cent or 25
of the respondents had chosen (b) that is a large scale mixed new development as the main understanding of new towns
in the local context. This opinion came from twelve public sector planners and thirteen private consultants. Another 15
or 32 per cent referred to (a) that is s a self-contained new development as the understanding of the new concept. Both
the public and the private sector planners of ten each had the same understanding. As for statement (c) four planners
marked it as the answer with equal opinion of two each from the public and the private sector planners.
These are the three interpretations that are considered the overall understanding of a new town in Malaysian context.
The common feature of a new town as raised by these planners appears to be a large scale mixed development which
must be self-contained new development with a targeted population of about 30,000 population. However, for statement
(e) two respondents, one each from the two sectors had chosen it while for statement (d) only one planner from the
private practice accepted it as the answer. The new industrial development or (f) does not fit to be qualified as a new
town and none had chosen it.
4.2 The overall new town development in the Malaysia
This was intended to record the impression of those town planners with regards to new towns which had been
developed throughout the Peninsular Malaysia. The planners identified for this survey were those holding the highest
positions in the organizations they were attached to, be it in the government or the private consultant offices. With the
experiences they had, this question had been answered by 34 per cent of them who were not satisfied with the
development of new towns. Of this 34 per cent, 19 per cent of them were the public sector planners while another 15
per cent were the private sector planners. The percentage of this dissatisfaction is high among the public sector planners
than the private sector planners.
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In addition to that, another 10.4 per cent of them were very dissatisfied with the situation. It was found that three
respondents or 6.4 per cent from the public sector and two or 4.3 per cent from the private sector were very dissatisfied
with the development. Thirteen of those planners or 27.7 per cents of them were satisfied with the new town
development. Out of 27.7 per cent, 17 per cent were the private sector planners while the other 10.6 per cent were the
public sector planners. However, none of respondents were very satisfied with it. The percentage of those with satisfied
answer was higher in the private sector group.
Another 25.5 per cent of the respondents answered that the situation is just right in their opinion. The percentage of the
private sector planners with this opinion was double that percentage of the public sector planners.
4.3 The need for integrated national policy on new town development
The development of new towns in this country had been treated as other land development and it has been clearly stated
in the National Land Code that any decisions pertaining to land matters are taken by the State Governments. The Town
and Country Planning Act 1976 is intended to ensure uniformity relating to planning in local authorities. The National
Urban Policy and National Physical Plan serve as the framework outline for future urban growth in Malaysia. The
National Urban Policy provides the strategic policies while the National Physical Plan provides strategic guidance on
the spatial trends and patterns of development (GOM:2007). The amendment of the Town and Country Planning Act
2001 (Act A1129) provides for the setting up of the National Physical Planning Council. The main functions of this
council are to include the co-ordination of development planning activities between Federal and State Authorities. This
therefore can ensure sustainable use of resources to minimise impacts on the environment. The National Physical
Planning Council is chaired by the Prime Minister and the Director General of Town and Country Planning is the
Secretary to the council (GOM: 2007).
Consequently, this particular question was addressed in the research questionnaire to the town planners so as to have
their collective suggestions about the requirements of the National Urban Policy for the regulations of the new towns.
The research found that all the respondents from the public sector answered yes reflecting that they agreed to the idea
of the National Urban Policy on new town development while only one of the private practice planners replied
negatively to this question.
4.4 The need for a special development control mechanism
The necessity for having control over the use of land to be in order is to ensure that land, a non renewable resource, is
utilised efficiently and effectively. Development control is the daily routine job by planners especially in the local
planning authority because prior to all development there is a requirement for a planning approval. Under sub-section
22(3) of the Town and Country Planning Act of 1976 (Act 172), the Local Planning Authority is the approving
authority of the area for which the proposed development is intended. As for development control practice, the authority
is required to grant planning permission either absolutely or subject to such condition as it thinks fit to impose, or refuse
to grant planning permission for a particular submission.
The question raised to the planners was pertaining to the requirement for a special development control mechanism for
new town development. Given the nature of a new town development, the development control mechanism must be
designed to ensure the course of actions are considered from the early stages. The current development control
mechanism does not ensure adequate integration and co-ordination at the federal, state and local government levels.
Co-ordination is thus required both within the state government and with the federal government. The special
development control mechanism for new town development should be able to monitor the socio economic processes
and their spatial impact and to ensure national policies are fulfilled. The special development control mechanism should
incorporate infrastructure, housing, facilities, industry, transportation, commerce and environment which should be
linked together in an overall national planning system of a new town. The planning of a new town must be viewed as an
integral part of the process of economic growth and change.
The survey found that 83 per cent or 39 respondents agreed to the need for a special development control mechanism.
From this 83 per cent, 42.6 per cent were public sector planners while the other 40.4 per cent were private sector
planners. The public planners were in the position of being involved directly with the development control mechanism
as the administration of land and the uses permitted on that land form crucial determinants of the extent and pattern of
urban development.
4.5 The need to revise the Town and Country Planning Act of 1976 so as to satisfy the new town development
In Peninsular Malaysia, land use planning is undertaken wholly within the provision of the Town and Country Planning
Act of 1976 (Act 172) and its amendments in 1995 (Act A933), in 2001 (Act A1129) and in 2007 (Act A1313). This
Act contains three basic elements towards an effective planning system which are (a) the planning administrative
system, (b) the development plan system and (c) the development control system. The Act was enacted to specifically
ensure more integrated and co-ordinated planning, zoning and land use management. However, there is lack of specific
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provision in the act which is related to new town development and this question was intended to gather responses
regarding the need for the revision.
The analysis shows that 57.4 per cent or 27 respondents did agree to the need to revise the present act so as to satisfy the
new town development. Out of these 27 planners, 17 were private practice planners while another 12 were from public
agencies. Among the reasons for the revision stated by the respondents was that lack of specific provision on new town
development which to them requires a separate act or sections and special approach. Another reason suggested by them
was that the revision of the present act is required as the basis to regulate new centres for a more balanced and equitable
growth and some proposed for a special new town act to be drafted. The planners also stated that the revision is needed
to improve the present enforcement system.
However, 17 or 36.2 per cent of the total sample of planners disagreed to the revision. As for those who disagree to the
proposition, 16 per cent of them stated that the present act was sufficient. Another 6 per cent of the respondents
mentioned that besides the Town and Country Planning Act, there was other legislation at federal or state levels
pertaining to land development which can be referred to by the State Authority upon the decision for land development
approval. There were two respondents who did not answer the question and one was unsure to the requirement and
wrote down the answer as unsure.
4.6 The need for special planning standards for new town development
Planning standards are important aids to town planners and decision makers for effective implementation and
development control. Controls are normally exercised over the character and distribution of land uses, a corollary of
these is effective control over intensity such as density and plot ration. Certain standards are set to control the physical
setting of the urban land area and to contribute in ensuring safety, health, amenity welfare, convenience, efficiency and
public interest (Ratcliffe:1974:396). These planning standards are intended for open space, playgrounds, community
facilities such as schools, religious centre, community hall, roads, car park, commercial areas and housing areas. Upon
granting the planning permission the local planning authority would normally check on the provision of related facilities.
The current practice applies population density control standards which measure the allocation of land use requirements
in terms of people. The application of the common planning standards to all development of different scale and sizes
will have the impact especially on the community facilities provision and other services. There is a need for special
planning standards for new town development.
The study found that 61.7 per cent or 29 planners stated that there is a need for special planning standards for new town
development while 36 per cent or 17 did not agree and one planner did not answer the question. Of the 61.7 per cent
who agreed to the proposition, 31.9 per cent were planners from the public sector while the other 29.8 per cent were
from the private sector. A total of 36 respondents cited their reasons for responding to this particular question and this
comprised of 76.5 per cent of the total 47 respondents. Majority of them stated that the special planning standards were
meant for new town development as to meet the current and future planned society. More so be able to adapt to the
future requirements especially with regards to the information technology and globalisation era which requires special
attention for infrastructure planning and development. Other reasons included were, that the existing planning standards
are rigid and non-flexible, new town planning requires special innovative concepts and the different scales of the new
town development need separate planning standards.
However, for those 17 respondents or 36.2 per cent who disagreed, planners from the private sector had a higher
percentage as compared to those from the public sector. The main reason to disagree as stated by the planners is that
the present planning standard is considered sufficient for all kinds of development Meanwhile one planner from the
private sector declined to answer the question. The analysis shows that there is a need for a special planning standards
for new town development.
In the United States of America they use planning standards known as land use intensity rating which takes into account
wider planning field factors providing a more reliable and less variable standards (Ratcliffe:1974). In Malaysia the best
example is the development of Putrajaya which was based on its special planning standards and design guidelines. The
need for special planning standards for new town development is meant to create a well-integrated socially balanced
community. New town development, timing, programming, magnitude and location, layout and design policy must be
controlled and they should be made on a more rational basis. The special planning standards for a new town must
incorporate elements of urban design and location criteria for the whole planned area. Based on the special planning
standards the infrastructure and other services can be provided more efficiently and effectively and the resultant
performance more accurately assesses. New town development involves design process from the earliest stages to
control density, plot ratio, environment, infrastructure, public facilities and transportation networks thus providing a
better and more sustainable place for living.
4.7 The need for a separate format of Development Proposal Report for new town development
The Town and Country Planning Act (Act 172) states in the new section 21, that the requirement for the submission of a
development proposal report must be added to the documents and plans to be submitted for planning permission. The
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report should describe the present condition of the site as well as the proposed development according to a standard
format applied to all types of land development (Zainuddin: 1999). The Development Proposal Report should include:
(a) a location map and a site plan
(b) particulars of land ownership and restriction
(c) a description of the land and buildings, including geology, topography, drainage and water bodies and catchment
area, a survey of all trees and all forms of vegetation which may be affected by the development
(d) a land use analysis and its effect on the neighbourhood land
(e) a development proposal and layout plan stating the development concept and justification, in particular matters
relating to measures for the protection and improvement of the physical environment
(f) layout plans, the details of which are specifies
(g) other matters prescribed by the local authority
The objectives of the development proposal report are to supply sufficient information about the proposed development
and to ensure that all relevant matters are made available to all local planning authority, and to help the local planning
authority in ensuring that its decision were based on relevant material consideration.
The study found that 66 per cent of the respondents agreed to the need for a separate format of development proposal
report for new town development while the other 34 per cent disagreed to it. Out of 66 per cent who agreed to the need
to have a separate format of the report, the percentage of those from the public sector was 36.2 per cent, slightly higher
than those from the private sector planners group of 29.8 per cent. However, for those respondents who disagreed with
the proposition, the higher percentage was the private sector planners comprising 21.1 per cent as compared to public
sector planners of 12.8 per cent.
There were four main reasons as suggested by the respondents who agreed with the need for a separate development
proposal report for new town development. Among those four reasons, the main one stated by them was due to the
complexity and scope of the development coverage on new towns which requires a special format of the new
development proposal report. Other reasons listed were to include issues on environmental impact assessment, social
impact assessment and resource management so as to have more comprehensive report compared to the existing report
format.
As for those who disagreed with the need for a separate development proposal report, they stated that the present format
of preparing the report can be applied to all types of development and additional details can be imposed when necessary.
The existing format was said to be flexible and could be adapted to all kinds of developments.
5. Findings
From the survey on the perception of the planners, the research found that all the related planning principles and
development control mechanisms currently in practice are not fully sufficient for new town development. There is no
provision on new town development in the Town and Country Planning Act (Act 172). New towns were developed
based on the planning standards and guidelines applied to all other property developments. The application for planning
permission and the content of the development proposal report for new town development follow similar requirement
used for other developments.
For all the proposition listed in Table 1 below, the percentages of respondents supporting for the change of the planning
principles and development control mechanisms as to meet the requirements of new town development ranged between
58 per cent to 98 per cent, while percentages of those disagreed to the change ranged between 2 per cent to 36 per cent.
Referring to the table, the results of the perception survey by the planners indicate that there is a need for an integrated
national policy which had been suggested by 98 per cent of the respondents. The issue was supported by all respondents
from the public sector while only one respondent from the private sector disagreed with it. The next issue was the need
for special development control mechanism for new town development where the proposition was supported by 83 per
cent of the respondents. This particular requirement was agreed upon by 87 per cent of the public planners and 79 per
cent of the private sector planners.
The third important requirement suggested was the need for the separate development proposal report format for new
town development as compared to a common one used for any size of development where 66 per cent of the
respondents agreed for different format. The need for special planning standards for new town development was
supported by 62 per cent of the respondents.
Table 1 shows that the percentage of the respondents from the public sector who supported the propositions ranged
between 52 per cent to 100 per cent. The percentage of respondents from the public sector group seemed to be higher
than the private sector group in all propositions except upon the issues of the need to revise the Town and Country
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Planning Act where the percentage response was lower. Their working environment may have influenced them in their
decisions concerning the reasons for the requirements foe each statement.
6. Conclusion
This research identified the planning principles and control mechanisms of new town development from the
perspectives of town planners. Based ion the analysis, a new town in the Peninsular Malaysian context could be defined
as a large scale mixed development which is self contained with a targeted population of about 30,000 or more. The
findings indicate the perceptions of town planners with regard to the new town development in this country. The
majority of them were not satisfied with the current situation.
Therefore the research findings on this perception survey indicate the following:
(a) There is a strong need for an integrated national policy for new town development
(b) There is a strong need for a special development control mechanism
(c) There is a moderately strong need for a separate format for preparing the Development Proposal Report for a new
town development
(d) There is a moderate need for special planning standards for new town development
(e) There is some support for revising the present Town and Country Planning Act so as to satisfy the new town
development
References
Cullingworth, J.B. and Nadin, V, (1994) Town and Country Planning in Britain (11th Edition), London, Routledge
Government of Malaysia, Town and Country Planning Act (Amendment) 2007 (A1313)
Government of Malaysia, Town and Country Planning Act (Amendment) 2001 (A1129)
Government of Malaysia, Town and Country Planning Act 1976, (Act 172)
Government of Malaysia, (2007) Malaysian Townplan- Planning Many Things, Department of Town and Country
Planning Peninsular Malaysia
Hall, P. (1990). Cities of Tomorrow, Oxford, Basil Blackwell
Morris, E.S. (1997). British Town Planning and Urban Design: Principles and Policies, Edinburgh, Longman
Ratcliffe, J. (1974). An Introduction to Town and Country Planning, (2nd Edition) London, Hutchinson. (1989
Reprinted)
Zainuddin bin Muhammad. (1999). Amendment to the Town and Country Planning Act 1976 (Act 172) and its
Implications, Habitat Malaysia, Human Settlements Journal of Malaysia, Issue No. 2 Dec 1999
Table 1. Summary of responses from perception survey of town planners

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