Transforming Penang’s transport system

People viewing the proposed Bayan Lepas LRT blueprint.- Courtesy of Penang Transport Master Plan

GEORGE TOWN: Penang island’s picturesque landscape is set to change within the next 10 to 15 years, upon the completion of transportation network systems to address the state’s worsening traffic woes.

Among the massive projects planned under phase one include four major highways, an undersea tunnel linking Butterworth to Persiaran Gurney and the Bayan Lepas light rail transit (LRT) scheme — all of which are estimated to cost RM46 billion under the Penang Transport Master Plan (PTMP) initiative.

Three of the four road projects and the undersea tunnel are being undertaken by Consortium Zenith Construction Sdn Bhd, while the Pan Island Link I (PIL 1) and rail project, deemed the backbone of the island’s public transport system, is under SRS Consortium.

Another eight-lane highway project for traffic dispersal is also planned at Persiaran Gurney, the cost of which will be borne by the Penang government if the project proceeds.

Under subsequent phases, more road projects are expected, together with monorail lines and a sky cab project. Passenger catamarans will also be a reality within an estimated two years.

The state government has maintained that all these projects are vital for the state’s growth and if they are not put in place, traffic problems will worsen.

The state government’s stand comes amid concerns raised by various quarters on whether such megastructures are necessary for the island itself, the high cost of their implementation and the resulting environmental issues.

Gridlock at Jalan Masjid Negeri in George Town. -NSTP/Danial Saad.

Sceptics have cast doubts on whether the projects will be able to resolve the state’s traffic woes once and for all. The perennial question appears to be: will the building of more highways resolve traffic problems?

Penang has about three times more roads per 1,000 persons than Singapore, despite being around one-third of the latter’s size. In the same breath, only five per cent of road users take public transport compared with Singapore’s 67 per cent. Penang also has 1.4 vehicles per person versus Singapore’s 0.12 per cent.

When Chief Minister Chow Kon Yeow was an opposition member of parliament in 2002, he had said: “If the findings of the Halcrow Report are true, Tan Sri Dr Koh Tsu Koon (the then Penang chief minister) would be irresponsible for pushing the PORR (Penang Outer Ring Road) through as this will not be a long-term solution to the traffic congestion on the island.”

The PIL 1 project is an extension of the aborted PORR. There were two other reasons why Chow had opposed PORR — it was a tolled road and no open tender was used to award the project.

On May 28, 2002, DAP adviser Lim Kit Siang had said: “The nightmare of the Penang traffic congestion is likely to be back to square one, not in eight years, but probably less than five years, after the completion of PORR.

“What Penang needs is an efficient public transport system, based on sustainable transport policy. PORR is not a medium-term, let alone long-term, solution to the traffic congestion nightmare on the island.”

Critics believe that the two leaders could not have been any clearer on why they had opposed PORR, and as such, have questioned Chow’s justification for PIL 1.

Based on PIL 1’s Environmental Impact Assessment (EIA), consultants reported in Chapter 8 that by 2030 (between five and seven years after completion) traffic volume would reach up to 8,000 pcu/hour (passenger car unit) during evening peak hours, which means traffic will return to gridlock.

Penang has three times more roads per 1,000 persons than Singapore, despite being around one-third of the latter’s size. – NSTP/File pic

In April 2011, the Penang government and the Northern Corridor Implementation Agency appointed AJC Planning Consultants Sdn Bhd in association with Halcrow Consultants Sdn Bhd, supported by Singapore Cruise Centre, to carry out the Penang Transport Master Plan Study.

In October the following year, Halcrow submitted four reports: Public Transport Approach, Highway-based Strategies, Accessibility Report and Institutional Reforms.

The Public Transport Approach proposed a transport network that included the long- and medium-term setting up of hubs and park and ride stations, along with a wider bus service network, bus rapid transit (BRT), trams and LRT.

The Highway-based Strategies included road hierarchy studies, road improvement network, widening of roads, and key projects to support and complement the Public Transport Approach.

For transport expert Professor Dr Ahmad Farhan Mohd Sadullah, solving transportation problems is no easy task as one needs to understand that transport problems are associated not only with the growth of traffic but many external factors.

Farhan, from Universiti Sains Malaysia’s School of Civil Engineering, said good planning would provide a good start but the management of day-to-day travel and people’s behaviour were also important.

Penang, he said, had to be viewed from two perspectives — the island and the mainland — with each having their own sets of challenges. Additionally, commuting between the two landmasses must also be addressed.

He pointed out the transport system’s capacity as a critical element which would determine impending transportation woes. It is therefore imperative for cities to manage their systems well.

“For Penang island, this is very critical as the roads are narrower and the population density is higher. With virtually no control over vehicle ownership, each household, despite its relatively low living floor area, has high vehicle ownership per household.

“With poor public transport provision, there will be a general tendency for many to use their vehicles for daily commuting. This phenomenon will contribute to all roads facilities reaching their capacity rapidly, and this is when many transport woes will begin to appear.”

To address this, Farhan said, a “damage control strategy” was pertinent.

“By that, do not add to the problem while we find a solution. Roads in Penang island are already unable to cope with the present volume, therefore any move which will bring more vehicles onto the island during peak periods should be avoided.

“Unfortunately, more land is being rapidly developed and will substantially increase the daily trip generation on the island, with added trip attractions to the island for commuters.

“If we do not manage this, the road system on the island will clog up and lead to possible gridlock everywhere.”

Farhan said Penang must promote the use of public transport to relieve the situation.

The PTMP and PSI are two infrastructural projects that have our full support as long as they are carried out according to guidelines and conditions

laid out by the relevant authorities. NSTP/pic courtesy of PTMP

“However, as Penang is late in introducing a rail system, it had to rely on the bus system first. This is tough, as the ability to transfer private vehicle users to buses is very limited.

“Rail-based systems have a better chance of attracting private trip-makers to public transport, as segregated systems like rail will be more reliable and can provide the closest level of service to private modes.

“One big issue with this is that it requires a change in culture and this will take time. Trip-makers will weigh out the aspects of cost, convenience and reliability before they will even consider changing their mode of travel.

“This is why I believe having an urban rail system is imperative and urgently needed for Penang. Rail is on the highest hierarchy of public transport. Only rail will have a chance of changing the fate of public transport and provide a better option towards a demand and supply equilibrium situation.

“We need to make it work by having a proper plan so that the rail-based system can be a practical proposition for people to shift and leave their private transport. Once it stabilises, the public transport system should start to prevent new workers and commuters from using private transport and will rely on public transport. We need to reduce the volume of private vehicles on Penang roads.”

He said in Kuala Lumpur, it took almost a decade before the LRT system was able to change the travel culture there, therefore Penang must have a rail-based system on the island.

On the Penang mainland situation, Farhan said although it was less critical, the mainland would likely, over time, replicate the island’s traffic trend.

He said it was especially critical when roads on the mainland had to cater to heavy traffic of vehicles passing through to get to the island, in addition to its rapidly growing traffic volume.

“The mainland must start an effective public transport scheme, including an introduction of a complementary rail network to support the north-south rail spine provided by the Electric Train Service and KTM Komuter services.

“This will provide the much-needed effective traffic dispersion, as well as bring the culture of public transport to the people in Seberang Prai.”