the development of the national physical plan information and ...

THE DEVELOPMENT OF THE NATIONAL PHYSICAL PLAN
INFORMATION AND MONITORING SYSTEM :
DIRECTIONS AND IMPLEMENTATION
Mohd. Jaafar b. Mohd Atan
and
Nor Sallehi Kassim
Federal Department Of Town and Country Planning Peninsular Malaysia
_______________________________________________________________________________
Abstract
Plan preparation process has evolved from the traditional approach to a more advanced
application of Geographical Information System. This approach has convinced plan making
processes including the National Physical Plan of Malaysia. The National Physical Plan
(NPP) is prepared based on the requirement of the Town and Country Planning Act 1976
(A1129). It contains a written statement formulating strategic policies in determining the
general directions and trends of the physical development of the country and to be
accompanied by indicative plans. The National Physical Plan is needed to strengthen the
existing national planning system so that it is more systematic, effective and efficient. The
NPP will also coordinate the various planning agencies and authorities at the three levels of
National, State and Local and will act as the basis for the preparation of lower tier physical
development plans that is the Structure Plans and Local Plans. The NPP is the first in the
country to optimize the Geographical Information System (GIS) in generating landuse
planning analysis and the development of the NPP Information System. The NPP Information
System also known as Landuse Planning Intelligent System (LaPiS) had focus on data
integration and data sharing in relation to landuse planning in Malaysia. It was a successful
attempt but need to be rectify from time to time based on the availability of data. Another
important aspect of the NPP is the need to implement and monitor its policy. It is vital
especially in the review process. The proposed monitoring system will ensure a continuous
evaluation on the implementation of the NPP and become the basis for the review of the Plan.
This paper will discuss the implementation and the proposed monitoring system of the
National Physical Plan
1.0 INTRODUCTION
The National Physical Plan (NPP) has formulated strategic policies for the purpose of
determining the general directions and trends of the physical development of the
nation, accompanied by indicative plans to clarify the strategic policies. Its function
includes; to strengthen national planning by providing a spatial dimension to national
economic policies; to coordinate sectoral agencies by providing the spatial
expression to sectoral policies; to provide the framework for state and local planning;
and to provide physical planning policies.
Unlike any other plans, the NPP plan preparation process has involved the
application of a total Geographical Information System (GIS) and the application of
related analysis in formulating and evaluating alternative strategies. The Plan has
been approved by the National Physical Planning Council and the immediate task is
to ensure the need to implement the policies and achieved the objectives of the Plan.
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In relation to this, the implementation of the information system and monitoring
process is considered as an important aspects in manipulating and analysis of the
Plan which provide the inputs in the review of the NPP.
2.0 NATIONAL DEVELOPMENT PLANNING
The three levels of the national development planning framework has stated the
three tier of plans which constitutes the national, regional/states and local planning
(Figure 1). Every level are integrated and operated as a collectively cohesive system
with the same goal in supporting and to achieve the Vision 2020. Based on these the
implementation of development planning plans has features the three levels which by
nature are integrated and dependent on each other. The integration needs
standardization and to achieve this, action has been taken in coordinating the base
map, landuse classifications, coding system and terminology. While most of the
standardization has centred on data formatting and landuse classifications, the
analytical part of the plan making processes is also linked due respect to the detailing
of each plans.
National Physical Plan
The Town and Country Planning Act 1976 (A1129) has stated that the Director
General of Town and Country Planning shall upon the directive of the Council
prepare and submit to the Council for its approval a draft National Physical Plan
which cover Peninsular Malaysia. Once the Plan is approved the policies of the NPP
will take effect unless they are subsequently altered or replaced. In view of changing
socio-economic circumstances of the country, the Act stipulates that the Plan be
reviewed every five years in tandem with the review of the National Five Year
Development Plans, or as and when directed by the Council.
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Figure 1:
National Development Planning Framework.
VISION 2020
LEVEL 1 : NATIONAL PLANNING
5 - YEAR
DEVELOPMENT
PLAN
NATIONAL
PHYSICAL
PLAN
SECTORAL
POLICIES/
PLANS
LEVEL 2 : REGIONAL / STATE PLANNING
5 - YEAR
DEVELOPMENT
PLAN
REGIONAL /
STRUCTURE
PLAN
SECTORAL
POLICIES/
PLANS
LEVEL 3 : LOCAL PLANNING
LOCAL
PLAN
SPECIAL AREA
PLAN
Structure Plans
Structure Plans
Structure Plans formulated the expectations of development within each state and
propose major economic and infrastructure projects for the states.
Local Plans
Local Plans provides the vehicles for development control process and setting the
direction of development for a local planning authority area.
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3.0 NATIONAL PHYSICAL PLAN PREPARATION PROCESS
The study involves 7 major sectors consisting of Global Framework and Macro
Economics, Physical Planning and Urbanisation, Population, Housing and Social
Amenities, Infrastructure and Utilities and Transport, Environment and Natural
Resources, Institutional and Implementation.
The overall approach of the study involves the formulation of Vision and Principles
and definition of goals and objectives (Figure 2). The Vision and other development
plan policies has been accounted for in directing the vision and goals of the NPP.
This follows by activities related to compilation of database which ranges from all the
sectoral studies involved.
The collection and compilation of the data base are done sectorally but have been
Figure 2 :
NPP Plan Preparation Process
NPP Information System
National Vision &
National
Development
Policy
Literature
Review and
Collection of
Data and
Information
Analysis of
Issues &
Problems and
Opportunities
Evaluation
Vision
Global and
Regional Trend
Objectives
and Principles
Future
Trends and
Assumptions
Alternative
Development
Strategies
National Physical
Development Strategy
National Physical Plan :
•
Projections
National Physical
Development Indicative
Map 2020
• Written Statement
consists of :
- Policies and Strategies
- Mechanism for
Implementation,
Management and
Monitoring of NPP
- Manual for National
Data Base
Review
reviewed and examined cross sectorally which later formed the base for formulating
the NPP Information System. Data were monitored and updated accordingly and will
act as the integral part in the monitoring and updating of ‘future’ NPP studies. These
datas will then been analysed where issues, problems and opportunities has been
highlighted in the process of formulating the development strategy. The process
continues with the evaluation of the development strategies before a final Draft NPP
is formulated.
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The output of the NPP consists of the National Physical Framework Indicative Map
and Written Statements which consists of policies, mechanism for implementation,
the planning information system and the monitoring system of the NPP. There are 36
policies formulated supported by 194 measures.
The overall approach has indicated the plan preparation process of the NPP which
involves from setting the goals and objectives follows by data collection and
formulation of development strategy. Since it is a GIS base study it has achieved in
integrating all relevant data related to spatial distributions and of course it has assist
significantly in designing and modelling data analysis and other related spatial
analysis including the formulation of the National Physical Plan Information System.
4.0 NATIONAL PHYSICAL PLAN INFORMATION SYSTEM
The NPP information system was developed to provide functionality in landuse
planning and analysis, including the followings:
• A mechanism for the storage, retrieval and manipulation of landuse and
related planning information system
• It provides general guideline in the development of an integrated landuse
planning information system
• Enable information retrieval and sharing
The NPP Information System (NPPIS) consists of databases grouped into physical
component, population and demographic component, the socio-economic component
and landuse component. Besides the four major components it also consists of
information on policies, guidelines and planning statutes which could support
decision making and landuse analysis. The formation of the NPPIS evolved through
many steps and stages which requires major tasks such as the need to collect
information from various sources. The fundamental in collecting and conceptualise
data models into logical or physical entity is not really a problem but excavating data
from various sources is quite challenging. The NPPIS has gathered data from two
major sources namely the State Planning Offices and relevant government
deparment and agencies. State Planning Office had supply updated landuse from
various plans while government departments has provided related data such as the
forest area, agriculture and transportation network that will be used for analysis of the
landuse pattern and the formulation of the development of strategies.
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Data Sharing
Another important aspect of the NPPIS is the component related to data sharing.
Data sharing is based on the approach that there is no need for duplication in the
collecting and collating of data. Data can be copied, overlayed and consistenly used
for landuse analysis. In this case data collected will be shared by three major
component of plan making exercises which include the National Physical Plan, State
Structure Plan and Local Plan and the data were design based on the hierarchical
data structure that would suit the three plans and the major differences would be the
scale and level of information. The salient features that has been considered in
ensuring the sharing concept includes the need to imposed a compatible format
between the three level of plans, the type of information to be shared and the
mechanism to facilitate information sharing. This are all has been considered in
NPPIS through the formulation of a standardised data format which include landuse
classification, coding, terminology, use of common base maps, geo-referencing
system, scale and projection, and colour scheme.
Linkages
Data sharing implies the need to ensure a compatible data format so that data is
readable between all levels of plan making. On the other hand data also need to be
link and integrate in order to ensure the availability and accuracy of data. NPPIS has
acknowledged the need to implement the vertical and horizontal linkages approaches
in determining the data flow between all level of plans. Vertical linkages involves the
flow of information between offices in the Department of Town and Country Planning
(DTCP) while horizontal linkages are related to the flow of information from related
agencies as the major data providers on spatial and statistical data (Figure 3 and
Figure 4)
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Figure 3 : Vertical Information Flows
NPP INFORMATION SYSTEM
Socio-economic
tables &
projections
ECONOMIC
Global Trade
Macro Economy
Primary
Secondary
Tertiary
DEMOGRAPHIC-
SOCIAL
Population &
Households
Urban Settlements
Rural Settlements
Community
Facilities
INFRASTRUCTURE
Roads
Rail
Ports
Airports
Utilities
Remotely sensed
data
LAND USE
Land Cover
Urban Built-up Area
Existing
Residential
Commercial
Industrial
Recreation Areas
Others
PHYSICAL ENVIRONMENT
Elevation
Slope
Rivers
Lakes, Ponds
River Basins
Water Catchment Zones
Forest Reserves
Mining
Soils
Agro-climatic
NPP MAIN
FINDINGS
STRATEGIES
& COMPOSITE
MAPS
DTCP
(FEDERAL)
Committed projects
Proposed projects
Approved projects
SSP INFORMATION SYSTEM
STATE LAND-USE &
ZONING PLANS
COMMITTED DEVELOPMENT
DTCP
(STATES)
DLP INFORMATION
SYSTEM
LOCAL
AUTHORITIES
Parcel lot level
information
Local Area
Data
Development
Projects
Source: NPP Study 2000-2020
Figure 4
Major Data Providers in NPPIS (Horizontal Information Flows)
GOVT. AGENCIES
Related to
JUPEM
(CAMS)
EPU
DEPT OF
STATISTICS
DEPT OF AGRICULTURE
MACRES
Tourism
Forestry
Minerals &
GeoScience
Drainage & Irrigation
Environment
Utilities
MOU
MOU
MOU
NPP
Information
System
MOU
MOU
GOVT AGENCIES
related to
Housing
Education
Health
Trade & Industries
Social Facilities
Transport
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5.0 NATIONAL PHYSICAL PLAN MONITORING SYSTEM
With the completion of the National Physical Plan (NPP), a comprehensive Land-use
Planning Intelligent System (LaPiS) was established comprising of the following:-
• Statistical data in tabular format on socio-economic profiles collected and collated at
state, district or town levels
• Spatial data on land use in Peninsular Malaysia in GIS-based format
• Textual data especially pertaining to guidelines, classification of land use, standards and
indicators proposed in the NPP study.
To ensure that accurate, timely and up to date information are available for the next NPP
reviews, a monitoring system was set up whereby land use data can be updated and
processed with special focus on monitoring land use policies through a selected set of
indicators and their associated quantitative measures. This process provides the
framework for the continuous evaluation on the implementation of the Plan and which
would become the basis for the review of the NPP at regular five-year intervals. The
process will involve the database of the NPP Information System (NPPIS) which can
support the monitoring process. This IT system is known as the National Physical Plan
Monitoring System or NPPMS and it is essentially a GIS-based system which monitors
land use changes over time and space.
• CONCEPTUAL FRAMEWORK OF NPP MONITORING SYSTEM
Modular Concept
The overall concept of NPP Monitoring System (NPPMS) is illustrated in Figure 5. The
development of NPPMS in modules is adopted because this approach has the advantage
in that NPPMS can be easily enhanced through the development and incorporation of
new modules as and when the need arise. The sub-components of the system comprises
of: -
• The Input (Back End)
• The Core (comprising of processing and analysis sub-modules)
• The Output (Front End) comprising of derived tables
Module 2 cannot be developed at this stage due to lack of available data. However, it is
an essential component to complement NPPMS in monitoring land use changes over
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time and thus it is proposed that remote sensing techniques to be used in developing this
module in the near future.
Additional modules such as the land suitability analysis, population growth projections,
decision support systems which can draw upon the comprehensive datasets of LaPiS
can also be developed and incorporated as sub-modules in the future to complement and
enhance the functionalities of NPPMS.
Figure 5 : The Conceptual Framework of NPPMS
LAPIS
Statistical
Database
BACK END
Statistical & Graphical Datasets
Remotely
Sensed Data
on Land uise
cover
LAPIS
Spatial
Database
(ARCVIEW 3
FORMAT)
M1
Land Use
Database
Module (in EXCEL
FORMAT
M 2
Built-Up Areas 2-5
Year Trends
(Image Analysis
M 3
NPPMS
Graphic Data
Base
ARCGIS 9 Format
Selected Land-
Use Layers
extracted from
LAPIS
Potential Sub-modules
Population Growth modeling
Industrial Growth centre
Modeling
Geo-Demographic Analysis
Regional Analysis
SIA
Benchmarking
Target Setting
M 4
Analysis and
Modelling of Land-
Use Changes
ArcGIS 9 Model
Builder
M 5
Output Tables
of Indicators
In HTML
format
CORE
Land Suitability Analysis
(AHP)
Site Selection
EIA
Proposed future
directions/applications
Enhanced DSS to
Stakeholders
FRONT END
The conceptual framework of NPPMS described above can also serve as the prototype system
for monitoring land use changes at the three levels of planning, which are (i) at NPP Peninsular
Malaysia level, (ii) at RSN (State) level and (iii) at RTD (District) level. This would involve a
standardised classification of land use from the general and strategic (NPP level) to the most
detailed, involving lots (RTD level) with the immediate being the State level. Information sharing
among the three systems would be crucial and standardization in terms of land use classes,
scale, naming and colour schemes, complementary GIS platforms has been developed by JPBD
so that the three components can be fully integrated and data flow seamlessly from one
subsystem to the other.
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Similarly the land use indicators for monitoring can also be complementary and supplementary at
the three different levels. As an example indicators at NPP level are at a strategic level based on
Peninsular-wide scale of impact. Indicators at RSN level can monitor land use changes based on
issues relevant to each State and likewise, land use indicators at the District level can be
developed to monitor changes based on detailed types of land use which are most relevant to
each district.
6.0 CONCLUSION
A landuse monitoring system is capable of examining and tracking landuse changes whereby
information can be updated and reviewed accordingly and could provide the basis for the review
of the National Physical Plan. The paper has highlighted the NPP Information System and the
concept of the monitoring system in the implementation of the National Physical Plan. However
the key areas need to be taken into consideration in ensuring the success of the NPP Information
and Monitoring Systems are as follows:
• Need to ensure the vertical flow of information between the SSPIS and the NPPIS. DTCP
State will supply updated land use data and other information collected from the State
Structure Plan and various Local Plans to Federal DTCP which will in turn analyze the
land use changes and monitor the continued relevance of selected land use policies. The
vertical flow of information shall be made obligatory between State and Federal DTCP.
• Need to ensure that the horizontal flow of information from the line agencies and major
data providers to NPPIS. The horizontal flow of information will involve relevant
government departments and agencies that will supply necessary information to the
NPPIS. The horizontal flow of information may be achieved through a process of
negotiations in the form of Mou’s between DTCP and the various government agencies
and departments
• The need of updating the Information in NPPIS in order to ensure that accurate, timely
and up to date information will be available for subsequent NPP Reviews. Consequently,
data maintenance and updating of NPPIS Information System will be on an annual basis
in order to analyze land use changes in a timely manner.
• Monitoring land use changes: This will be done from the bottom up, that is, information on
land use changes would be tracked at state level and generalized to meet the needs of
the NPP Information System.
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EVALUATION OF ALTERNATIVE STRATEGIES
NPP PRINCIPLES & OBJECTIVES
STRATEGY
EVOLVEMENT
STUDY FINDINGS
MULTICRITERIA
DECISION MAKING
ECONOMIC
STRATEGY
ENVIRONMENTAL
STRATEGY
SOCIAL
STRATEGY
ECONOMIC
STRATEGY
SOCIAL
STRATEGY
Criteria
• Economic Based
Employment
• Industrial Index
• Urban hierarchy
INPUT
ENVIRON.
ASPECTS
• ESA Ranking
• Forest Spine
INPUT
Criteria
• State aspirations
• Pop. Natural
increase
• Committed
Development
Criteria
• Land, infrastructure & resources
• Environment sensitive areas
• Social economic development status
• Productivity & efficiency
• Quality of life
PREFFERED
STRATEGY
COMPARISON
EVALUATION
PREFFERED
STRATEGY
• Future Development
Area
SELECTED NPP
STRATEGY
(Adjusted)
• Target Population
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