| Transport system needs radical overhaul |
| Thursday, 16 April 2009 14:49 |
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We carry here the working group report on transport. The group comprised Ahmad Chik, Angeline Shannan, Choong Sim Poey, Khor Hung Teik, Lee Chin Ark, Lee Khek Mui, Leong Yueh Kwong, Lim Hooi Siang, Lim Mah Hui, Low Swee Heong, and benefitted from discussions and advice from Ganesh Rasagam, Tai Tuck Leong and Rajen. Click through headers to get to individual sections. PENANG FORUM REPORT OF WORKING GROUPS: TRANSPORT
In Penang, rapid economic development in the last three decades has brought about increased affluence and increased urbanisation. This affluence, together with the national policy of promoting the national car, also brings about significant growth in the number of vehicles choking the road network. There are about 1.4 million vehicles (motorcycles, cars and other vehicles) for a population of about 1.4 million people in Penang. This is about double the number of vehicles in 1999. The increase in traffic capacity of roads in Penang has not kept up with the increase in the number of vehicles and traffic demand. Bottle necks in the road system and poor traffic management together with bad development control and planning and lack of enforcement inevitably results in traffic congestion. Traffic congestion if left unchecked will lead to further losses in economic productivity as the amount of time spent on the roads increase reducing productive work time. ENERGY TRENDS AND TRANSPORTATION* Globally, the depletion of petroleum resources has resulted in surges in the cost of petroleum in recent years. The cost per barrel of petroleum in July 2008 rose to about USD140 per barrel, up from USD35 per barrel a few years ago. Goldman Sachs and other financial analysts have projected that the cost will increase to USD200 per barrel in the near future. It has also been estimated that Malaysia will be a net importer of petroleum by about 2014, although it would still be an exporter of natural gas for some years to come. Petrol prices in Malaysia are likely to double in the near future to reflect the global market prices if the present petrol subsidy is reduced or removed. The recent price hike of petrol prices by 40% in June 2008 is an indication of things to come. With the anticipated escalating fuel costs, the sector most seriously affected would be the transportation sector and private vehicles in particular. It is a matter of time increased fuel cost will render private vehicle too expensive to operate for a sizeable portion of the population. An efficient and affordable public transport system becomes a necessity rather than an inconvenient option. A greater use of public transport would result in a reduction in total fuel use. This will also reduce the fuel subsidy presently being used to artificially keep the price low. * Editor's note: Few could have foreseen the oil price scenario for 2009 TOWARDS A SUSTAINABLE TRANSPORTATION STRATEGY FOR PENANG The development of an alternative transport strategy based on a drastic increase in the use of a public transportation system (rather than dependence on private vehicles) is a matter of urgency, as there is a lead time of a few years before effective implementation of any decision to adopt such a strategy. A sustainable transportation system must be integrated with the structure and local plans which determine the pattern of growth and development of Penang. In fact, the local and structure plans must adopt a sustainable transport system as part of its development planning strategy. This would result in a more sustainable path to development. Issues of environmental sustainability will be of increasing concern in the coming decades when the global depletion of energy and other natural resources will become more evident. Resource depletion will lead to escalating prices. A total reduction of energy use through energy conservation and greater efficiency will decrease the environmental impacts of green house gases generated by the internal combustion engine. A greater use of public transportation and better urban planning will reduce the total amount of energy needed for mobility. This will reduce the adverse impacts of our activities and will help fulfill Malaysia’s obligation of reducing our environmental impacts to a sustainable level as mandated under the international convention on global climate change. Mobility and accessibility for people rather than the movement of cars should be the primary objective of a sustainable transport policy. Mobility and accessibility should be considered as one of the basic needs of the population and an objective of social equity. OBJECTIVE OF PENANG TRANSPORTATION WORKING GROUP Terms of reference and scope of work A number of persons with interest in transportation issues in Penang were invited by the Penang State Government to be members of the working group on transportation. The group comprised mainly professionals from different walks of life who had an active interest in issues of transportation in Penang. The group included planners, engineers, environmentalists and activists in public transport. All members work on a voluntary basis. Approach to report The group met a number of times in May and June 2008 and discussed the various transportation issues rather than just traffic issues. The group also held discussions with transport planners and specialists in transport infrastructure on various issues. The draft findings were presented to the State EXCO member in charge of traffic in early July 2008. This final report would be presented to the state government for their considerations and follow up action. One underlying principle adopted by the group was that the main objective of a transportation system should be MOVING PEOPLE AND GOODS, NOT CARS. Much of the transport planning in the last few decades had been based on planning for cars. New roads have been constructed and old roads widened to accommodate the increasing number of vehicles. This in turn made it possible for people to live further away from their place of work and recreation. This approach of planning urban centres and new residential and commercial areas that require the use of cars has reached a point when it created so many problems that it had become neither viable nor sustainable. A number of developed countries have come to a similar conclusion and have adopted a different paradigm for transportation and urban planning. The objective of transforming the Penang transport system is to create a transport system that is:
CURRENT SITUATION: IDENTIFICATION OF ISSUES There are numerous weaknesses in the current transportation system. These include:
Crucial to all this is that there is no current Transport Master Plan of Penang, despite various detailed transportation studies that have been done over the last few decades. The most recent comprehensive study done was in 1998, entitled “Penang Urban Transport Study” and conducted by Halcrow Consultants Sdn Bhd. However, key recommendations were not implemented. Instead, there have been ad hoc solutions (such as the designation of one-way streets) to pressing problems, frequently undertaken merely to pacify immediate public pressure. Without a coherent Transport Master Plan, there has been an obvious lack of coordination and integration in proposed development projects with infrastructure development. Permission for development projects has been given even when the road infrastructure has not been developed. The traffic congestion that has resulted has been very predictable and could have been avoided with better planning and coordination. Traffic congestion is increasing in Penang, and is made worse by factors such as:
INSTITUTIONAL CONSTRAINTS TO TRANSPORT IMPROVEMENT Organisational and institutional issues have become one of the main barriers to a functional public transport system. The regulation of public transport is best described a “a tangled web of bureaucracy” given the difficulties of getting permits for operating public transport such as for buses and taxies. Over centralisation of authority to Federal Government even for very local problems of the state, such as bus routes and permits to operate commercial vehicles, exacerbate problems and make solutions very difficult. Presently, no single body plan, coordinate and manage transportation in the state resulting in a large number of agencies responsible for different aspects of transport. The lack of coordination and integration in planning, implementation and management of transport is very evident. The different agencies responsible for transportation include:
There is insufficient government investment in public transport, a necessity for an adequate and efficient system. The recent introduction of Rapid Penang where buses were supplied is an exception rather than the rule in terms of the government financing of public transport. The privatisation of roads and the Penang Bridge have resulted in some improvement in the infrastructure but at a high cost to the public. TRAFFIC IMPACT ASSESSMENT AS A PLANNING TOOL Traffic Impact Assessment (TIA) has not been properly implemented for new developments, giving rise to predictable and avoidable problems. Examples include: Air Itam and Relau high rise developments; Gurney Drive development; TIA of zoning and development plans; North coast of Penang Island; Bayan Lepas and Gertak Sanggul bottlenecks. TIAs are an essential planning tool and need to be fully utilised with independent assessments being done for all high-impact projects. TRANSPORTATION NEEDS TOWARD 2020 The population of the island and mainland is expected to continue to grow though at a faster rate on the mainland. There will be a greater need to connect the population centres of the mainland to the island. New townships are growing on the island and mainland such as in Batu Kawan and suburbs in Balik Pulau and Gertak Sanggul. New growth centres in Penang include the industrial parks in Bukit Minyak, Kuala Juru and others on the mainland; Tanjung Tokong; Jelutong and Queensbay. Meantime the development of the Northern Corridor Economic Region heralds Penang as the key logistics hub and regional centre. This clearly has implications for transport needs. There are some outstanding proposals for major transportation projects. The Penang Outer Ring Road (PORR) was proposed in the Halcrow “Penang Urban Transport Study” and subsequently privatised. However, no implementation has taken place due to various technical, social and financial problems. Partial funding was allocated under the Ninth Malaysia Plan but this was subsequently withdrawn in July 2008. The Penang monorail/trams/rail transit was also budgeted for under the NInth Malaysia Plan but public opinion in Penang was not entirely favourable for the monorail. Other options such as LRT and trams have their advocates. However, in July 2008, this project was withdrawn by the Federal Government. The Penang Second Bridge is still being planned, with contracts signed but some delay due to technical and financial reasons. STRATEGY FOR TRANSFORMING PENANG TRANSPORT SYSTEM There are a number of components if a decent Transportation Strategy is to be effected. This includes the production of key plans and commissions, as well as ensuring the public are fully involved and informed. There needs to be a formulation of a statewide Transportation Master Plan for the whole of Penang (looking at both the Island and Seberang Perai). The plan needs to be developed with reference to what is most appropriate for the people of Penang, guided by the principles of sustainable development. In its terms of reference would be:
With regard to the latter, suggested case studies of cities could include Curitiba (Brazil), Bogota (Columbia), Kyoto, Singapore, Hong Kong, and Xiamen. Key questions would include: Do they have a "single authority"? How do they manage the traffic? What are the innovative/creative measures they adopt? How do they involve and manage public reactions? How do they manage the public transport systems? How do they finance these systems? A Penang Transport Commission needs to be established, to plan, regulate and manage all transportation issues in the state. How it would be accountable to the residents of the state would need to part of its constitution. The idea of having commission or authority that would be responsible for coordination, planning, implementing and managing all aspects of transportation has been mooted several times. The Halcrow Urban Transport Study commissioned by the State Government proposed the formation of a Public Transport Authority (PTA), although did note that there may be some legal problems in the establishment of such an authority. The functions of the Penang Transport Commission would include:
The composition of the Penang Transport Commission would be drawn from the Chairperson from State Government; relevant MPPP/MPSP councillors; relevant MPPP/MPSP officers like traffic engineers, and town planners; NGO representatives; public representatives; relevant government agencies such as JKR or PPC; and representatives from public transport companies such as bus companies and taxi companies. Recognising that the establishment of a Transportation Commission would take time as it is a legally constituted agency and would have to go through a possibly lengthy legal process, we propose that a Penang Transport Committee be set up. This Committee can be set up by the State Government and can perform the functions of the proposed Transport Commission but without some of the legal powers. In the meantime, the process of setting up the Transport Commission can proceed and when established, can take over the functions of the Transport Committee. The involvement of the public is crucial in ensuring an effective and sensitive transport policy. There needs to be clear avenues for public involvement in planning and in feedback mechanisms. A campaign to educate the public on new paradigm shifts in transportation and lifestyles may be considered, as well as on-going dialogue sessions with the public in local areas to listen to their views, understand any specific local concerns and to promote greater use of public transportation. Short-term action plan (within 6 months)
Mid-term action plan (6 months to 2 years)
Long-term action plan (2 years – 5 years)
An adequate budget must be allocated for the short term action plan as well as the development of the Penang Transport Masterplan. Budget for implementation of short term proposals: Decongesting Penang through traffic management measures and the rationalisation of the numerous one-way system of roads in George Town. There is one consultancy study on how to decongest George Town. However, there will be a need for some additional data collection to optimise the proposed changes. This needs the hiring of a traffic consultant. Budget for master plan studies: The drawing up of TOR and the scope of work for the Penang Transportation Master Plan will need a consultant to ensure technicalities are adequately addressed and incorporated. They will work with members of the Transport Commission or an Ad Hoc Transport Advisory Panel which the state can set up while the commission is being established. The Penang Transportation Master Plan should be completed in 9 months. The MPPP and MPSP should contribute to funding for the PTMP study, based on RM1.00 per head of population. Financing strategy for the transformation of the Penang Transportation System: The amount of money required for the transformation of the Penang transportation will be large and will be beyond the financial capability of the state. It will be necessary to obtain Federal Government funding through the various Malaysian development plans and possibly through a special allocation. To convince the Federal Government that financing and supporting public transportation and transport infrastructure is worthwhile, they will need to be convinced that such funding will be of mutual benefit to both the Federal Government as well as to the State Government. This approach will result in a “Win-win Approach” on State-Federal cooperation as it will save the Federal Government money in terms of savings in fuel subsidies when Penang has a viable transportation infrastructure and an efficient public transportation system. The logic of the argument is as follows: Improving public transport will reduce private vehicles use and will therefore result in savings from a reduced (Federal) petrol subsidy. It may be proposed that the formula for savings of the grant/subsidy would be 50% to finance public transport in each state with 50% going back to Federal Government. If the present subsidy is about RM30 billion per year nationwide, and assuming that Penang has 10% of the national subsidy, the amount paid to Penang vehicles is RM3 billion. If public transport reduces car usage by 10%, the amount saved from not having to subsidise petrol is RM530 million per year. If savings are shared by the Federal and State governments, Penang will get RM265 million for public transport expenditure and the Federal Government would get back RM265 million in savings. Other sources for long term financing may include subsidies from the state; monies from CBD tolls; car parking collections; rental on retail at stations; tolls to be collected by government; advertisements; land auctions and land swaps; loans from international and institutional banks such as ADB or the World Bank. CONCLUSION Various steps can be taken immediately to better manage the traffic so that traffic congestion can be reduced. While various traffic management measures and rationalisation of traffic flows can help decongest the roads to some extent, a comprehensive Master Plan for Transportation for the whole of Penang is necessary to meet the future challenges of moving people and not cars. The master plan should cover both the island and the mainland. It should be integrated with the land use and development plan for Penang for the coming decades. Public transport would take an increasing important role in the mobility of people as they go about their daily activities. The modes of public transport would include buses, rail and ferries. Affordable and efficient public transport will be an increasing demand of the general public, especially when the cost of petrol is expected to escalate in the future. For the implementation of the master plan, various institutional mechanisms must be in place. A State Transport Commission or Authority with the powers to plan, implement and manage all transport issues in the state is critical. THE PENANG FORUM Back to top Related links
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