Abstract

This report examines the roles and challenges surrounding the development of communication infrastructure in Malaysia, focusing on the implementation of the Garis Panduan Perancangan Infrastruktur Komunikasi (GPP-I) and the Uniform Building By-Laws (UBBL) amendment 2021. These documents recognise communication services as an essential public utility, alongside water and electricity. The research investigates the roles of state governments, local authorities, and network service/ facilities providers while exploring the barriers to adopting these policies. This study employs an exploratory and qualitative approach to examine the roles and challenges faced by state governments, local authorities, and network providers in the development of communications infrastructure and the associated guidelines in Malaysia. The research gathers insights through interviews, focus group discussions, and document reviews, allowing for an in-depth exploration of context-specific challenges. Using thematic analysis, the study seeks to provide an understanding towards the roles and challenges to policy implementation at both the state and local levels, as well as the difficulties encountered by network providers. Data was collected from July to October 2024 via multiple platforms, including telephone interviews, online meetings, and WhatsApp conversations. A total of 16 respondents participated, with some requesting anonymity. The sample consisted of two (2) respondents from the state level, 12 from local authorities, one (1) from a network service/facility provider, and one (1) from the industry, representing a diverse geographic range from Malaysia's Northern, Central, Southern, and East Coast Regions. Key findings from the roles of the stakeholders include i) the main role of the state government is that in its responsibility to ensure a balanced relationship between the community, economic growth and governance in the area of its jurisdiction, it uses the State Structure Plan to dictate the need to have better communication services; ii) the role of the local authority is in between the planning stage via Local Plan and implementation via the Certificate of Completion and Compliance (CCC) procedure. It plays a role more of a coordinator and monitoring to ensure the process of telecommunication development aligns with that of the policies; and iii) the network provider's role is more about abiding by the policies and implementation procedures. Through understanding the roles of each stakeholder, it eases the exploration into the challenges faced by them. From the analysis, it was found that local authority faces the most challenges because they are sandwiched between the responsibilities mandated by the state level, while having to manage their own roles and having to monitor the progress of network providers. Their capacities and capabilities need recalibration. For the state government, the main challenge would be to raise awareness and exposure for the end users of the policies that they produce themselves while also understanding the policies that have been established by the federal-level agencies. A deeper understanding towards the content and objective of communications-related policies is highly recommended. As for the network providers, their challenge is more of understanding the policies (because they are the end users of those documents) as well as having a better monitoring mechanism for infrastructural construction. The recommendations outlined in this study underscore the importance of coordinated efforts to accelerate the deployment of communication infrastructure in Malaysia. By addressing these barriers, the country can enhance digital connectivity, promote equitable access, and strengthen its position as a leader in the digital economy.

Introduction

Communications and broadband services have become essential to our daily lives and are key drivers of economic activities. They also play a critical role in attracting both domestic and foreign investments to Malaysia. Acknowledging their importance, the government has taken proactive steps to support the development and deployment of communication infrastructure. The introduction of the Garis Panduan Perancangan Infrastruktur Komunikasi (GPP-I) aims to assist state and local governments in this effort. Additionally, the definition of communications has been included in the amendment of the Uniform Building By-Laws (UBBL amendment 2021) to support communications as a public utility.

Although the UBBL amendment 2021 has been approved and gazetted at the federal level, it has yet to be gazetted at the state level. Similarly, while the GPP-I has been approved at the federal level as an instrument to facilitate the recognition of communications as a public utility, its implementation at the state and local levels remains limited. This study explores the roles and challenges faced by state authorities, local authorities, as well as network providers in adopting the GPP-I and integrating the UBBL amendments of 2021.

Three (3) research objectives established are;

This research is significant from a policy and governance point of view in the sense that it can uncover the bottlenecks, such as bureaucratic inefficiencies, resource shortages, or gaps in training and capacity building. The findings could help to create a more coherent and effective policy environment that accelerates the deployment of communication infrastructure. Also, identifying the barriers to communication infrastructure development in Malaysia, offering insights from the perspective of the state authority, local authority and network providers in helping to improve policies, enhance coordination, expedite deployment, and promote social equity.

Literature Review

MALAYSIA'S INITIATIVE ON SUSTAINABLE DEVELOPMENT GOALS

Malaysia has significantly progressed in implementing SDG 9 (industry, innovation, and infrastructure) to address infrastructure challenges by 2030. The key initiatives of SDG 9 include the National Fiberisation and Connectivity Plan (NFCP) and Pelan Jalinan Digital Negara (JENDELA). The NFCP aims to expand Malaysia's digital connectivity by increasing fibre optic network coverage, ensuring broadband speeds of 30 Mbps in 98% of populated areas, and bridging rural-urban connectivity gaps. Similarly, JENDELA focuses on transitioning Malaysia into a digital economy. During Phase 1 (2020–2022), Malaysia has expanded 4G coverage to 96.9% of populated areas, improved broadband speeds to 35Mbps, and prepared for 5G deployment. Phase 2 (2023–2025) aims to achieve 100 Mbps mobile broadband speeds, 100% 4G coverage, and the full deployment of 5G. To achieve this, advanced technologies, such as satellite solutions, will address connectivity gaps in underserved areas.

MyDIGITAL ECONOMY BLUEPRINT

MyDIGITAL, guided by the Malaysia Digital Economy Blueprint, aims to transform Malaysia into a high-income, digitally-driven nation. This initiative complements national policies such as the 12th Malaysia Plan and Wawasan Kemakmuran Bersama 2030, which focus on bridging the digital divide, fostering innovation, and boosting economic growth. Key goals of MyDIGITAL include creating 500,000 jobs, equipping all students with access to online learning, and enabling 875,000 MSMEs to adopt eCommerce. By 2022, all government ministries and agencies were expected to implement cashless payment systems, with all civil servants achieving digital literacy. The blueprint is being implemented in three (3) phases (2021 to 2030) to strengthen digital adoption, drive transformation, and position Malaysia as a regional leader in digital content. This study highlights Thrust 3, which focuses on developing digital infrastructure to ensure extensive and high-quality connectivity.

MURNInets

The Malaysian Urban-Rural National Indicators Network for Sustainable Development (MURNInets) evaluates sustainability through urban indicators. In 2017, PLANMalaysia introduced MURNInets 2.0, a framework encompassing six (6) dimensions: Powered Economy, Safe Environment, Prosperous Communities, Optimal Land Use, Infrastructure and Efficient Transportation, and Effective Governance. One of the notable initiatives is the Infrastructure and Efficient Transportation dimension. A significant measure of Utility Efficiency is the Broadband Coverage Rate (4G), which tracks the percentage of the population with access to 4G services, aiming for 100% urban coverage by 2025. To achieve this goal, efforts are concentrated on upgrading existing networks and installing new infrastructure to address connectivity demands effectively.

MALAYSIAN COMMUNICATIONS AND MULTIMEDIA COMMISSION (MCMC)

The Malaysian Communications and Multimedia Commission (MCMC) plays a pivotal role in regulating the communications and multimedia industry to drive economic growth and address social needs. The MCMC actively regulates communications, broadcasting, and online activities under the Malaysian Communications and Multimedia Commission Act (1998). Since 2001, it has also overseen postal services and digital signature certifications. MCMC's core responsibilities include advising the government on policy objectives, enforcing relevant laws, regulating industry activities, and encouraging self-regulation. It promotes fair competition, ensures compliance with licensing standards, and safeguards consumer interests through dispute resolution and service availability. Its social regulation efforts focus on content development and public education, while technical regulation addresses spectrum management and enforcement of technical standards. Collectively, these initiatives strengthen Malaysia's digital infrastructure, driving innovation and enhancing competitiveness.

GARIS PANDUAN PERANCANGAN INFRASTRUKTUR KOMUNIKASI (GPP-I)

The Garis Panduan Perancangan Infrastruktur Komunikasi (GPP-I) guide authorities and developers in integrating communication infrastructure into urban planning. By addressing issues such as uncoordinated placements, the GPP-I prioritises safety, fairness, efficiency, accessibility, and aesthetics in development. Developers must incorporate communication infrastructure into their plans, treating it as an essential utility. Administrators uphold standards set by MCMC, maintain infrastructure, and ensure equitable access for service providers. Malaysia's federal and state governments share law-making authority, with federal laws prevailing in case of conflicts. This structure allows federal initiatives like the GPP-I to coexist with state-level guidelines, provided they align with overarching federal policies.

UNIFORM BUILDING BY-LAWS (UBBL AMENDMENT 2021)

The Uniform Building By-laws (UBBL) amendment 2021 mandates the inclusion of comprehensive communication infrastructure as a prerequisite for development approval. By-law 2 defines "communication" as services specified under the Communications and Multimedia Act (1998), ensuring strict adherence to MCMC standards. By-law 25 requires that a Certificate of Completion and Compliance (CCC) is issued only when all essential services, including communication infrastructure, are fully implemented. By-law 27 extends this requirement to partial CCCs for phased developments. As a conclusion, Malaysia has made significant progress in aligning its SDG 9 development with the digital infrastructure. These initiatives aim to bridge the digital divide and enhance broadband access. Despite these advancements, challenges such as coordination issues, limited resources, and low awareness at local levels continue to hinder implementation. Tools like the GPP-I and UBBL amendment 2021 address these gaps by integrating communication infrastructure into urban planning. Overcoming these barriers is essential to achieving Malaysia's goal of becoming a high-income, digitally-driven nation.

Methodology

This study adopts an exploratory and qualitative approach to investigate the roles and challenges faced by the state government, local authorities and network providers within the context of communications infrastructure development and its related guidelines in Malaysia. The study area is Peninsular Malaysia, while the targeted population are the state government, local authorities and network providers operating in Peninsular Malaysia. To ensure stakeholder representation, all there (3) targeted populations, i.e. the state government, local authority, and network provider according to regional demarcation in Malaysia, including Northern, East Coast, Central and Southern Regions, were approached. Following the qualitative sampling method, the respondents will be interviewed until data saturation is achieved.

The qualitative nature of the study allows for the collection of context-specific insights while shedding light on the challenges faced in the subject matter. Three (3) sets of open-ended questionnaires were produced as a guide for the interviews; one (1) for the state government representatives, one (1) for the LA representatives and one (1) for network provider representatives. The data were collected through various qualitative methods, including focus group discussion, in-depth interviews, written answers and voice recordings, depending on the comfortability and requests of the respondents. Then, the responses were transcribed. Afterwards, a thematic analysis was conducted where the themes of the roles and challenges faced by the targeted populations to policy implementation at the state and local levels were uncovered. The findings were then mapped according to the roles, challenges and recommendations.

Findings and Analysis

Data was collected from July 2024 to October 2024, where a total of 16 respondents participated with some requested anonymity. The sample comprised two (2) respondents from the state level, i.e. Johor and Selangor; 12 from local authorities, i.e. three (3) from the Northern Region, four (4) from the Central Region, four (4) from the Southern Region and one (1) from the East Coast Region; one (1) from a network service/facility provider; as well as one (1) additional sample from the industry. It is noted that efforts to reach out and engage with officers at the state level were met with constant rejection. In the beginning, state officers from Selangor (Central Region), Johor (Southern Region), Terengganu (East Coast Region), Perak and Kedah (Northern Region) were approached. The participants represented a diverse geographic range ensuring a diverse and comprehensive representation of perspectives relevant to the study. However, it is to note that after rounds of enquiries that were met with rejections while considering time constraints, the study decided to move on with two state-level officers who agreed to participate. As the study into the challenges faced with the implementation of the UBBL amendment 2021 is more related to state-level affairs, this has become a limitation to the study. In other words, the study is unable to have a clearer view of the roles and challenges faced by the state-level government in the effort to implement the usage of UBBL amendment 2021 in their jurisdiction area.

Research Objective 1: To identify the roles that state government, local authority and network service providers in the process of communication infrastructure development/deployment

Research Objective 2: To identify the issues, challenges and experiences faced in adopting GPP-I and the gazettement of UBBL amendment 2021

Recommendations

Research objective 3: To recommend prioritisation of successful factors facilitating state government and local authorities' adoption of GPP-I and the gazettement of UBBL amendment 2021

Conclusion

Malaysia has made notable progress in aligning its communication infrastructure development with national priorities and global Sustainable Development Goals. Initiatives such as JENDELA and MyDIGITAL Economy Blueprint reflect the country's ambition to bridge the digital divide and strengthen its position as a regional leader in the digital economy. Together with the above initiatives, it is supported by the establishment of GPP-I as well as the gazettement of UBBL amendment 2021. However, it was found that both GPP-I and UBBL amendment 2021 encountered problems in terms of its usage and limited implementation at the ground level. As such, the study intends to understand the issue by using exploratory and qualitative approaches. Through thematic analysis, the roles and challenges faced by the stakeholders involved were discovered, and suitable recommendations were then suggested.

The main role of the state government in the telecommunication infrastructure perspective is its responsibility to ensure a balanced relationship between the community, economic growth and governance in the area of its jurisdiction; it uses the State Structure Plan to dictate the need to have better communication services. From here, we can understand that the state level is more towards governance and policy-based intervention. The role of the local authority is in between the planning stage via the Local Plan and implementation via the CCC procedure. It plays a role more of a coordinator and monitoring to ensure the process of telecommunication development aligns with that of the policies. As for the network provider, it is more about implementation and following procedures.

	Roles		Challenges		Recommendations
State Government	SG 1: Governance endorsement		I-SG 1: End users of policy documents are not fully aware of its varying objectives and usage		R-SG 1: Increasing end users' awareness and usage towards guidelines with similar objectives
			I-SG 2: Prioritisation of Guidelines and Acts endorsement at the State and Local Level		R-SG 2: Improve cooperation and facilitate smoother policy adoption
	SG 2: Ensuring balanced relationship between the community, economic growth and governance
	SG 3: Development plan
Local Authority	LA 1: Development plan
	LA 2: Planning permission		I-LA 1: Comments from MCMC as a technical committee during the Planning Permission process is not as detailed until the point it can guide LA to help monitor the conditions outlined in GPP-I		R-SG 3: Enhancing the role and capacity as a technical committee in the planning permission stage
	LA 3: Endorsement of Certificate of Completion and Compliance (CCC)		I-LA 2: PSP has more "power" over LA in terms of CCC approval		R-LA 1: Strengthening LA's capacity and manpower for effective infrastructure development
			I-LA 3: The definition of the term "telecommunication" has too broad a meaning
	LA 4: Community engagement
Network Provider	NP 1: Pre construction consultancy		I-NP 1: Opposition from landlords and local communities
	NP 2: Planning permission submission
	NP 3: During construction and post construction		I-NP 2: Failure of contractors to adhere to the approved deployment plans causing project delay and cost implications

Figure 1: The mapping of roles, challenges and recommendations from the perspective of state government, local authority, as well as network provider in adopting the GPP-I and integrating the UBBL amendments of 2021.

Through understanding the roles of each stakeholder, it eases the exploration into the challenges faced by them. From the analysis, it was found that the most challenging stakeholder is the local authority because they are sandwiched between the responsibilities mandated by the state level while having to manage their own roles while having to monitor the progress of network providers. Their capacities and capabilities need recalibration. For the state government, the main challenge would be to raise awareness and exposure for the end users of the policies that they produce themselves while also understanding the policies that have been established by the federal-level agencies. A deeper understanding towards the content and objective of communications-related policies is highly recommended. As for the network providers, their challenge is more of understanding the policies (because they are the end users of those documents) as well as having a better monitoring mechanism for infrastructural construction.

The main limitation of the study is that it is unable to have a clearer view of the roles and challenges faced by the state-level government in the effort to implement the usage of UBBL amendment 2021 in their jurisdiction area. Again, this was caused by the fact that many state-level officers refused to participate in the study. Despite this limitation, the study was able to uncover interesting findings from the stakeholders on the ground. By addressing these challenges, Malaysia can enhance its connectivity, support economic inclusivity, and secure its position as a digitally-driven, high-income nation. These efforts are essential to achieving the country's long-term goals of digital transformation and social equity.

References