西 南 交 通 大 学 学 报

第 54 卷 第 4 期 JOURNAL OF SOUTHWEST JIAOTONG UNIVERSITY Vol.54 No.4 2019 年 8 月 Aug. 2019

ISSN -0258-2724 DOI：10.35741/issn.0258-2724.54.4.9

Research Article

MARINE SPATIAL PLANNING: THE WAY FORWARD FOR SUSTAINABLE DEVELOPMENT OF CENTRAL , Nazli Aziza,*, Zikri Muhammadb, Farahdilah Ghazalic, Wan Izatul Asma Wan Talaatd, Jumadil Saputrae,* aSchool of Social and Economic Development 21030 Kuala Nerus, Terengganu, Malaysia, [email protected] bSchool of Social and Economic Development 21030 Kuala Nerus, Terengganu, Malaysia, [email protected] cInstitute of Oceanography and Environment 21030 Kuala Nerus, Terengganu, Malaysia, [email protected] dInstitute of Oceanography and Environment 21030 Kuala Nerus, Terengganu, Malaysia, [email protected] e,*School of Social and Economic Development 21030 Kuala Nerus, Terengganu, Malaysia, [email protected]

Abstract The paper emphasises the potentials of Marine Spatial Planning (MSP) to be adopted and implemented in Central Terengganu, referring to three districts, namely Kuala Nerus, and Marang. The territorial waters of Terengganu Central are demarcated by the protected boundaries of the marine parks, namely Redang, Lang Tengah and Kapas Islands. These three marine park islands are major ecotourism destinations in Central Terengganu, but the development that has been carried out on the islands and areas surroundings their gateways in the mainland, to some extent, is not integrated and sustainable. The purpose of this study is to seek the answers to what extent the current and future development trends in Central Terengganu have addressed the multiple competing and conflicting uses related to socioeconomic development, marine/ocean governance and conservation. The qualitative techniques were used for analysis and a case study was used to understand the nature of government policies and management as well as the existing and future plans. To summarize, this study concluded that MSP is the best option for the Terengganu State Government to improve the management of coastal and marine resources for environmental sustainability and socio-economic planning in Central Terengganu.

Keywords: Marine Spatial Planning, Sustainable Development, Central Terengganu.

摘要 : 本文强调了在登嘉楼中部采用和实施海洋空间规划（MSP）的潜力，指的是三个地区，即瓜拉纳鲁 斯，瓜拉登嘉楼和马朗。登嘉楼中心的领海由海洋公园的受保护边界划分，即 Redang，Lang Tengah 和 Kapas Islands。这三个海洋公园岛屿是登嘉楼中部的主要生态旅游目的地，但在岛屿和周边地区进行的开发 在某种程度上是在大陆的门户网站，并没有整合和可持续发展。本研究的目的是寻求中央登嘉楼当前和未 来发展趋势在多大程度上解决与社会经济发展，海洋/海洋治理和保护相关的多种竞争和相互冲突的用途的 答案。定性技术用于分析，案例研究用于了解政府政策和管理的性质以及现有和未来的计划。总之，本研 究的结论是，MSP 是登嘉楼州政府改善沿海和海洋资源管理的最佳选择，以促进登嘉楼中部的环境可持续

2

性和社会经济规划。

关键词: 海洋空间规划，可持续发展，中央登嘉楼。

I. INTRODUCTION and future development trends in Central This study examines the possibility of Terengganu have addressed the multiple adopting and implementing Marine Spatial competing and conflicting uses related to Planning (MSP) in Terengganu by using the socioeconomic development, marine/ocean Central Terengganu as a case study. Central governance and conservation. Terengganu is the most urbanized and populated area in Terengganu. Besides the land boundaries, II. LITERATURE REVIEW the territorial water of Terengganu Central is Marine spatial planning (MSP) or also known demarcated by the different protected boundaries as coastal and marine spatial planning refers to a of the marine parks, namely , Lang planning process from coastal areas to open- Tengah Island and . These ocean territory, which has been utilized to reduce ecological sensitive areas warrant for a proper conflict in coastal and ocean‟s use [1]. MSP has master plan to ensure their sustainability in the widely in Europe, to coordinate exploitation of long run. These three marine park islands are sources and space with conservation activities. major ecotourism destinations in Central MSP is not merely focusing on the environmental Terengganu but the development that have been conservation, yet, comprise of a broader carried out on the islands and areas surroundings objective to balance the distribution of activities their gateways in the mainland, to some extent in selected coastal and ocean areas to serve are not integrated and sustainable. Therefore, the ecological, economic, and social purposes main goal is to underline the importance of including cooperative between states to overcome viewing the mainland and islands in Central common threats or promoting peaceful relations Terengganu as a system with varied users that [2]. Among good examples of MSP are involved multiple competing and conflicting uses. -Great Barrier Reef Marine Park Zoning It addresses the existing socio-economic and and Re-Zoning, the Netherlands Integrated ecological issues while exploring the mechanisms Management Plan for North Sea 2015, Master required in advancing MSP in Terengganu. Plan for the Belgian part of the North Sea in Three districts namely Kuala Nerus, Kuala Belgium, and Norway-Integrated Management Terengganu and Marang referred as Central Plan for Barents Sea in Norway. Terengganu in this study. Central Terengganu has Conflicts among users and activities will been chosen as a case study to conceptualize the directly influence of the health of marine future potential of MSP in Terengganu because environment. Issues on limited space and marine of its unique geographical, environmental and resources, coupled with, tremendous economic socio-economic features. Central Terengganu expansion, has caused several maritime threats surrounded and endowed with a few ecological including overfishing, pollution, and destruction sensitive areas (ESAs) such as marine parks, of habitat [3]. Moreover, with the growth of reserved forests, estuarine and sandy coastline. tourism industry in coastal and ocean areas, the However, these ESAs are competing and development of such activities including “eco” conflicting with the socio-economic growth as based activities must parallel with environmental Central Terengganu is the state governance and and planning procedures [1]. Through MSP, an education hubs as well as the most urbanized area integrated plan-based approach for marine with the highest population in Terengganu. management could take place to accommodate The existence of different demarcated ESAs spatial and temporal uses and to reduce existing along with the rapid socio-economic and potential conflicting uses [3]. Therefore, to development in Central Terengganu requires a achieve balance between all embedded objectives, proper master plan to ensure their sustainability a robust planning framework and stakeholder in the long run. Hence, the main goal of this engagement are required, together with extensive study is to underline the importance of an data acquisition, data manipulation and integrated coastal and marine spatial plan in systematic conservation planning [4]. Central Terengganu as a system with varied users One of the vital aspect of MSP is the that involved multiple competing and conflicting ecosystem-based management (EBM) approach uses. It seeks answers to what extent the current for to manage coastal and ocean areas in which to 3 safeguard the long-term sustainability of marine environment and resources [5]. Thus, it gives an indication that MSP satisfy the concept of environmental sustainability and in line with biodiversity conservation goal stipulated in the Rio+20 United Nations Conference on Sustainable Development. Nevertheless, it is also crucial to deploy an effective support system in order to achieve sustainable marine planning and management, through utilization of a spatial data infrastructure for marine spatial information sharing [6].

Figure 1:Geographical location of Kuala Nerus, Kuala III. RESEARCH METHODOLOGY Terengganu and Marang This study uses both qualitative methods and Geographical Information System (GIS). Content However, two districts, Kuala Terengganu analysis is employed for qualitative methods by and Besut were excluded from the pilot study. using a case study to understand the nature of The Central Terengganu coastline stretches from government policies, governance and Kampong PagarBesi (Kuala Nerus) to Kampong management. Data from Focus Group Discussion JambuBongkok (Marang). In general, the (FGD) with different stakeholders such as coastline in these three districts is protected by a government agencies, private sectors, local few islands such as Redang Island, communities, tourism operators and non- and Kapas Island. governmental organization (NGOs) were In order to implement MSP, the geographical triangulated with the various official reports, location and population of Central Terengganu legal documents and public policies. The use of must be taken into consideration in the zoning GIS maps is necessary to understand the overall plan. Location, size and population of Central geographical setting of the three districts. Maps Terengganu are vital to determine the competing used for the study were sourced from local plans mixed development and conflicting ecological of Kuala Nerus, Kuala Terengganu and Marang. uses. In addition, the land use mapping is used to Central Terengganu covers an area of produce new maps. 127,182.4 ha or 9.8% of the total area of Terengganu (1,295,512 ha). It has 464,600 out of IV. RESULTS AND DISCUSSION 1,152,700 populations in Terengganu (2015) (Table 1). A. Geographical location and population

This study only concentrates in the center Table 1. region of Terengganu. The regional area of Demographic of Terengganu by district, 2015 Terengganu had been conceptualized for a pilot study of MSP ocean governance in Terengganu District Area (Ha) Population Density Besut 123,367.8 162,400 131 that was undertaken in 2017 to investigate the Setiu 130,436.3 63,000 48 potential of MSP to be implemented here [7]. Kuala Nerus 39,752.1 175,200 440 This study divided Terengganu into four regional Kuala 20,776 186,100 895 areas namely North Terengganu (Besut and Terengganu Marang 66,654.3 103,300 154 Setiu), Central Terengganu (Kuala Nerus, Kuala Hulu 387,462.6 82,100 21 Terengganu and Marang), West Terengganu Terengganu (Hulu Terengganu) and South Terengganu Dungun 273,503.1 173,200 63 (Dungun and Kemaman (Figure 1). Kemaman 253,559.9 207,400 81

Kuala Terengganu covers an area of 20,776 ha (1.6%) of the total area of Terengganu. Kuala Terengganu is the state capital for Terengganu and the smallest district in Terengganu. Kuala Terengganu shares its borders with Kuala Nerus in the north and Marang in the west and the south (Figure 1). Kuala Terengganu has a population of 186,100 (16.14%) with the highest density of 895 persons/km2 in Terengganu (Table 1). 4 Nazli Aziz et al. / Journal of Southwest Jiaotong University / Vol.54 No.4 Aug. 2019

Kuala Nerus covers an area of 39,752 ha only such as Redang and Perhentian [9], [10], (3.06%) of the total area of Terengganu. Kuala [11]. Redang Island, and Nerus is the second smallest district in Kapas Island were gazetted as marine parks in Terengganu. Kuala Nerus shares it borders with 1994 [12]. Although the coral health index in Setiu in the north, Kuala Terengganu and Marang these marine parks shows that the corals in these in the south and Hulu Terengganu in the south areas are relatively healthy, but they are west (Figure 1). Kuala Nerus has a population of relatively fragile due to exposure to natural 226,177 (15.19%) with the density of 440 phenomenon and the pressure from urbanisation persons/km2 (Table 1). Redang Island and Lang and coastal development. Tengah Island, two of the Terengganu marine In general, using Live Coral Cover (LCC) as parks, are situated in Kuala Nerus. an indicator of health, the condition of Marang covers an area of 66,654.3 (5.14%) of corals surrounding Redang Island, Lang Tengah the total area of Terengganu. Marang is the third Island and Kapas Island had been found to smallest district in Terengganu. Marang shares it increase from 37% (2011) to 55% (2015) after borders with Kuala Terengganu in the north, the major bleaching event in 2010 throughout the Dungun in the south and the Hulu Terengganu in marine areas in . Besides the the west (Figure 1). Marang has a population of natural phenomenon, the ecological cycles on 103,300 (8.96%) with the density of 154 these three islands are being affected by the persons/km2 (Table 1). Kapas Island, one of the tourism industry [12], [13]. Thus, any future Terengganu marine parks, is situated in Marang. development must be limited in designated areas based on proper zoning. 83 percent of Redang The combination of Kuala Nerus, Kuala Island is currently covered by forest of (2,144.60 Terengganu and Marang in Central Terengganu ha). The remaining 17% contains mixed (9.8%) is about the size of Besut (9.5%) but development such as agriculture (6.3%), smaller than Hulu Terengganu (29.9%), Dungun commercial area (2.6%), beaches (1.2%) and (21.1%), Kemaman (19.6%) and Setiu (10.1%) settlement, infrastructures etc. (6.9%) (Figure 2). (Table 1). As for the population, the combination of these three districts represents of 40.3% of the total population in the state by occupying a meagre size of 9.8% of Terengganu. Thus, Central Terengganu has the highest density in Terengganu (Table 1 and Table 2).

Table 2. Demographic of Terengganu by district, 2015 District Area (%) Population (%) North Terengganu 19.6 19.6 Central Terengganu 9.8 40.3 West Terengganu 29.9 7.1 South Terengganu 40.7 33 Total 100 100

B. Ecological Importance Figure 2: Plan 1 - Land-use on Redang Island, 2018. Three of the Terengganu Marine Parks are situated in Central Terengganu. Kapas Island, The biggest land-use on Lang Tengah Island Lang Tengah Island and Redang Island are is also occupied by the forest over 117.94 ha marine protected areas with unique marine (97.30%). The remaining land-use is intended for habitats. However, the development plans of commercial purposes of 3.31 ha (2.70%) (Figure these three islands were planned individually 3). Unlike Redang, the locals do not inhabit Lang without taking into consideration of the hazards and pollutions from the adjacent mainland. Furthermore, the existing development plans of the Terengganu islands are relatively outdated since they were drafted and published more than two decades ago in 1997 [8]. The most recent studies commissioned by the authority was only carried out on the economic valuation and management effectiveness of selected islands 5

Tengah. It currently holds three resorts.  Forest reserve     Turtle nesting    Figure 3: Plan 2: Land-use on Lang Tengah Island beach  Birds: Native    Similar to Redang and Lang Tengah, the Migratory    biggest land-use on Kapas Island is the forest at  Marine Park    193.97 ha (94.6%). The remaining territory is the  Island    mixed land-use for commercial purposes,  River    infrastructures, etc. (5.4%) (Figure 4). Kapas is  Lagoon    also inhabited by the locals and holds only resorts.  Mangrove     Coral   

 BRIS forest   Gelam forest   

Table 4. Socio-economic profile of Kuala Nerus, Kuala Terengganu and Marang Kuala Kuala Marang Socio-economic profile Nerus Terengganu

 Fisheries     Tourism: o Resort    o Recreational     Aquaculture     Agriculture: o Palm Oil    o Rubber    Figure 4: Plan 3: Land-use on Kapas Island  Oil and Gas  Heritage  On the mainland, the coastline in  Jetty: , Marang is comparatively unique than o Fisheries    o Tourism    other coastal areas in the Peninsular Malaysia. o Silica  The Jambu Bongkok Forest Reserve (JBFR) is  Land reclamation    situated in Mukim Merchang. This forest reserve  Coastal shares its border with , in the development: neighboring , and its nearby o Human settlement     Logging    ecosystems up to the north to Mukim Pulau  Dredging  Kerengga. JBFR and its nearby areas is a beach  Coastal erosion    ridges interspersed with swales (BRIS) ecosystem. This forest reserve and its nearby C. Urbanization ecosystems are distinct from the rest of the Urbanization is concentrated along the coastal natural landscapes in Peninsular Malaysia areas and river estuaries. City and towns are because of the flora, fauna, microbes and fungus located in Kuala Terengganu, Kuala Nerus and of the BRIS. The vegetation in this area is Marang sprawls along the coastal areas. All main dominated by the Melaleuca cajuputi with water estuaries and their surroundings in these three body underneath. JBFR works as a natural districts such as Sungai Terengganu, Sungai Ibai laboratory and is significant for scientific and Sungai Marang have been developed. knowledge as well as for the conservation of Urbanization in the central Terengganu has been nature. Among its unique functions are to protect stimulated by the tourism industry. As in 2015, the inland from the strong South Sea winds service sectors (including hospitality) contributed and to absorb excessive rainfalls to mitigate flood RM 14,688 million (51.8%) - the biggest to the during monsoon season in Terengganu [14]. Gross Domestic Product (GDP) of Terengganu. Noting the potential of hospitality industry in Table 3. Ecological profile of Kuala Nerus, Kuala Terengganu and Terengganu, the East Coast Economic Region Marang (ECER) had designated Terengganu as the tourist gateway to the east coast region of Peninsular Kuala Kuala Ecological Marang Nerus Terengganu Malaysia. Tourism development involves both profile along the coastal areas and on islands. Sungai  Green turtle sea    Terengganu estuary and it surrounds has been 6 Nazli Aziz et al. / Journal of Southwest Jiaotong University / Vol.54 No.4 Aug. 2019

transformed extensively for Kuala Terengganu development and shall thus be accountable for City Centre (KTCC) under the ECER project. their actions based on the powers conferred under KTCC is the biggest ongoing project in the the respective lists. Table 5 below shows the Muara North (Kuala Nerus) and Muara South distribution of powers between the federal and (Kuala Terengganu) of Sungai Terengganu [15]. state government, as conferred under the Federal Constitution if the MSP were to be implemented D. Reclamation and Erosion in Terengganu. Geologically, these three districts are formed by the quaternary coastal plain. Quaternary Table 5. geological formations are composed of Distribution of Powers in Federal Constitution continental and marine deposits with, in Concurrent Federal List State List particular of the unconsolidated sands of marine List origin. The beaches of the Kuala Nerus, Kuala Mineral resources Land Wildlife Town & Marine & Terengganu, Marang are covered by 90 % sandy Agriculture country estuarine fisheries sediment. Basically, the central area is dominated planning by dune landscape formation with natural Pest control Forestry National parks Infrastructure vegetation type i.e. the lowland mixed Shipping & activities for state Rehabilitation dipterocarp forest, heath vegetation and navigation works melaleuca swamp. Meanwhile, the igneous rock Eroded & Water supplies Water dominates the formation of islands (see Table 3). mined land The coastline of these three districts is Tourism Riverine fisheries Drainage relatively straight and follows an orientation of Infrastructure activities for Irrigation about 150-330°. The coastline is protected by a federal works few islands, including Redang, Bidong and Housing Kapas. In general, the coastline of Kuala Nerus, Source, INOS (2017) Kuala Terengganu and Marang has been eroded with maximum erosion rate is up to 10 m/yr. Several piecemeal laws have been passed Reclamation has been extensively carried out for relating to environment to regulate sustainable the commercial development or erosion issue. In planning and development (as illustrated in Table general, the coastline in Kuala Terengganu 6 below) but enforcement and coordination district from Sungai Ibai estuary to Sungai between these laws remains unresolved. Issues on Terengganu estuary has been reclaimed. The the effectiveness of enforcement and better same methods have been used to overcome the coordination occur because the nature of those issues of erosion and sand sediment in Kuala legislations are mostly segmented, sectorial as Nerus and Marang, respectively. well as territorial. Yet the role of the enforcement agencies may have become overlapped leading to E. Regulatory and Governance Framework red-tape and inefficiency. The Ninth Schedule of the Federal Constitution of Malaysia divides and defines the Table 6. jurisdiction and legislative powers between the Federal legislations relating to environment, planning and development federal and state governments in Malaysia. List I (Federal List), List II (State List) and List III Legislations Functions/Role (Concurrent List) provides for the power Environmental Quality Provides the basis for the distribution in relation to the rights given Act 1974 (amended in coordination of all activities respectively to the federal and state governments 1996 and 2001) - related to the environment over administrative and governance matters throughout the country. (Table 5). Environmental Quality Regulates pollution standards. (Clean Air) Although the term sustainable is not Regulations 1978- mentioned anywhere throughout the 183 Articles Environmental Quality Regulates sewage and industrial and 13 Schedules in the Federal Constitution, (Sewage and Industrial effluents. sustainable matters can still be said to be Effluents) Regulations - embedded within the Ninth Schedule, without (1979 (amended in 1997) actually specifying which government is Environmental Quality Established the Malaysian responsible to legislate such laws. This can be (Environmental Impact Environmental Impact interpreted that both the federal and state Assessment) - 1987 Assessment government are equally responsible in passing Fisheries Act 1963 Responsible for conservation of legislations to implement and enforce sustainable (amended 1985) fisheries and established marine parks and marine reserves 7

F. Basis for Recommendations Proposals of functional zoning in this study are made based on the best practices in the Great Barrier Reef Marine Park (GBRMP) (INOS; 2017) and China (China Oceanic Development Foundation, 2018). The ecological profile (Table 3) and socio-economic profile (Table 4) collectively indicate that the possible MSP in Central Terengganu should focus on balancing the environment and socio-economic growth based on the existing and ongoing development as well as for the future plan.

Figure 6: Plan 5: Proposed land-use on Lang Tengah Island

Figure 5: Plan 4: Proposed land-use on Redang Island

The marine parks of Redang Island (Figure 5), Lang Tengah Island (Figure 6) and Kapas Island (Figure 7) as well as the reserved forests of Belara Forest Reserve (1) in Kuala Nerus, Jambu Bongkok Reserve Forest (25) in Marang and Merchang Forest Reserve in Marang (31), should be zoned as the areas for conservation zone, preservation zone, scientific research zone and habitat protection zone (Figure 2). These zones should be developed as eco-tourism destinations and eco-education nature labs to generate Figure 7: Plan 6: Proposed land-use on Kapas Island economic growth and income to local communities. Other areas in Central Terengganu should be demarcated as the general use zone for mixed socio-economic development such as commercial and settlement hubs, i.e. cities (Kuala Terengganu), conurbations (; Gong Badak, Marang and Bukit Payung), towns (Manir, , and Merchang); administrative centers (Kuala Terengganu, Gong Badak and Marang); settlements and industrial areas (Gong Badak, Chendering, , and Pulau Kerengga) and plantation/aquaculture lands (Kuala Nerus north, Kuala Terengganu west and Marang south). 8 Nazli Aziz et al. / Journal of Southwest Jiaotong University / Vol.54 No.4 Aug. 2019

The zones would prevent further degradation neighboring districts, Central Terengganu to the ecology and (re)plan the concentration of requires an integrated marine spatial planning. existing and ongoing mixed development of the Adopting and implementing MSP to achieve seaside areas (e.g. commercial, administrative, the sustainable development agenda is an arduous tourism/recreational and settlement) such as task as multiple stakeholders are involved in KTTC Muara North (Seberang Takir) – governing the areas in Central Terengganu. The Mengabang Telipot in Kuala Nerus; Kuala Ibai – overlapping jurisdictions between the multiple KTTC Muara South (Tanjung) in Kuala federal and state government agencies, Terengganu; and Rusila – Kelulut in Marang as particularly in terms of enforcement, would well as the estuary and river banks along Sungai hamper the effectiveness of MSP. Nonetheless, Terengganu, Sungai SungaiIbai and Sungai since land, rivers and the coastal areas, including Marang (e.g. tourism/recreational) in Central up to 3 nautical miles from the baseline falls Terengganu. These designed zones will prevent under the state‟s jurisdiction, it is not impossible the state government to bear a high cost of for the Terengganu State Government to adopt environmental rehabilitation in the future. MSP as the best option to strengthen the management of its coastal and marine resources for environmental sustainability and socio- economic planning in Central Terengganu.

VI. RECOMMENDATIONS/ SUGGESTIONS This study provides valuable baseline for the State of Terengganu to undertake a pilot case in implementing MSP in Terengganu. Although the study only focuses on Central Terengganu, the state government can use this case as a benchmark to broaden the MSP concept in the northern and southern coastal areas of Terengganu in the near future. Interestingly, as MSP concept is an intertwined research fields between the social science and science, it would sparks more new research such as the blue economy, maritime law, marine ecology, coastal engineering, and community development and so on.

ACKNOWLEDGMENT This study was partially funded by WWF, for the project of Marine Spatial Planning as a Tool to Achieve Ocean Stewardship and Advocacy

Figure 8: Reserved Forests in Terengganu towards a Healthy and Productive Ocean through Good Governance: A Study on Formulating Governance Solution to the State of Terengganu V. CONCLUSIONS 2017, and the Long Term Research Grant The physical development of Central Scheme awarded by the Ministry of Education Terengganu has been sparked by Kuala via the HICoEprogramme. Authors were also Terengganu as the capital state of Terengganu. benefited from their involvement as consultants The socio-economic growth has transformed a in the master plan for the development of resort kampong to town and a town to conurbation as a islands and marine parks in Terengganu that was „natural‟ process of urbanization in Central funded by Department of Tourism Terengganu. Terengganu. With the increased population and rapid growth of Kuala Terengganu as a city, urbanization process has been sprawling REFERENCES southwards and northwards of Kuala Terengganu [1] PAPAGEORGIOU, M. (2016) Coastal into Kuala Nerus and Marang. With the and marine tourism: A challenging expansion of Kuala Terengganu city towards the factor in Marine Spatial Planning. Ocean and Coastal Management, 129, 9

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