CHANGING PADDY LAND TO OTHER LAND USES AND
THE IMPLICATION TO THE PADDY PRODUCTION
CASE STUDY: ALOR SETAR, KEDAH DARUL AMAN,
MALAYSIA
By
Wan Ibrisam Fikry Bin Wan Ismail
Ismail Bin Omar, Associate Professor Dr,
Mohd. Zahib Bin Hj. Deraman, Associate Professor.
Department of Land Administration and Development
Faculty of Geoinformation Science and Engineering,
Universiti Teknologi Malaysia,
81310 Skudai, Johor, Malaysia.
Tel: +(6) 07-5530926; Fax: +(6) 07-5566163; E-mail: fikry@fksg.utm.my
Abstract
Generally, the rapid urbanization process of an area would affect the pattern
of land use. This is mostly influenced by the economic factor that strongly
focuses on the highest return that can be derived from the land. In Alor
Setar, the agricultural sector, which was a core economic sector previously,
now has moved towards more productive sectors. This has raised the
number of converted agricultural land, in order to fulfill the demand from
the housing, commercial, infrastructure and industrial sectors. This study is
focused on the conversion of paddy land, which has been developed with
various types of building. Based on the qualitative and quantitative methods,
it was found that a lot of housing projects were being carried out on the
paddy land. This research also found that the conversion activities do make
an impact to the paddy production. On the other hand, it is not such a major
issue since Alor Setar has already been gazetted for the future development
even though those paddy lands are located within the rice bowl area. Hence,
the conversion of paddy land, especially in other rice bowl area needs to be
perpetually controlled so that the importance of paddy sector can fulfill the
country’s need.
Keywords: KADA, MADA, paddy, private sectors,conversion, rice bowl.
1.0
INTRODUCTION
The number of agricultural paddy plots converted to building use is increasing rapidly
lately. The land is converted in order to fulfill the insufficiency of land from competitive
1
sectors especially housing and industrial (Fadzim, 2000). This is typically related to ‘the
highest and best use’ concept when a piece of land converted to be used optimally (Nik
Mohd Zin, 1997). For Majlis Bandaraya Alor Setar (MBAS), they have determined that
among the main objectives to achieve a developed city by the year 2010 is to transform
agricultural-based economy to a more productive sector (Buku Cenderamata Sempena
“Majlis Perisytiharan Bandaraya Alor Setar”, 2003). This has given a huge pressure on
paddy plantation especially, since it represents 80% of the local Alor Setar agricultural
sector. Paddy generally is a very important in Southeast Asia (Purcal, 1971). Ahmad
Mahdzan (1994) meanwhile emphasized that paddy is a main food commodity in
Malaysia.
Based on the Alor Setar’s development plan, which is Rancangan Tempatan Kota Setar
(1991), many paddy lands in Alor Setar have been gazetted as development area
meanwhile the suburban area recognized as the potential location. This provision has
encouraged the conversion of paddy land raised up and also given significant impact to
the rice production. The Star (14/8/1997) for example reported that, among the main
reason why paddy production decreased was that many paddy lands had been converted
for industrial and housing purposes. The State Government was advised to limit the
agricultural paddy land conversion. Generally, any agricultural land that is converted
should be replaced with the same amount of area (Utusan Malaysia, 26/5/1997). The
rationale of this action is to reach self-sufficiency in rice production. It is important to
search for this goal since Malaysia only able to produce 65% of the national rice need
(Jamal and Chamhuri, 1998). In other words, Malaysia should be aware of its food
security aspect. Food security is defined as the accessibility of food for citizens to have a
healthy and active lifestyle (Food and Agricultural Organization, 1983). The shortage of
food may cause disease as well as death to Malaysians. Thus, it is important to ensure
that the provision for converting paddy land would not affect the stability of paddy
production in our country.
1.1
The Purpose of Study
The main purpose of this study is to examine the effect of conversion of agricultural
paddy land for building use on paddy production.
1.2
The Objectives of Study
This study has two objectives. First, to discuss the conversion of agricultural paddy land
activities to building in Alor Setar. Second, to examine the effect of conversion of
agricultural paddy land to building on paddy production in Alor Setar.
1.3
The Scope of Study
This study focuses on the conversion of agricultural paddy land activities for building
purpose in Alor Setar during1989-2003. It argues on the conversion of agricultural paddy
land as the main contributing factor to the decreasing paddy production. Specifically, this
study analyses all the applications to convert paddy land to building, which were
registered with the Kota Setar Land Office (PTKS) and Kedah Mines and Land Office
(PTG), as the institutions that are supervising all land dealing in Alor Setar.
2
1.4
Background of the Case Study Area
Alor Setar is traditionally a paddy farming area. At present, this area is going through a
rapid urbanisation process. The study area is situated in negeri Kedah which is located at
the northern part of Peninsular Malaysia. Geographically, Alor Setar is a lowland area
and thus, suitable for paddy plantation. There is a research centre known as Pusat Latihan
Dan Pembangunan Pengembangan Teluk Chengai (PLPP), located about 5 kilometers
from Alor Setar city centre to facilitate the paddy sector in the area. The main function of
this centre is to facilitate on technology applications as well as to serve as a library to
those who need it (http://agrolink.moa.my/doa/english/latihan/index_plpp.html).
Based on Jabatan Perangkaan Malaysia (2001), Alor Setar’s latest population is about
114,949 people. It is expected that the population will reach up to 200, 421 by the year
2005 (Rancangan Struktur MPKS 1989). This city is governed under MBAS but all
paddy areas are administered under Muda Agricultural Development Authority (MADA)
(Refer Figure 1.1). MADA is one of the technical parties that should be referred to in the
conversion process of paddy land. Agriculture is still the main land use in Alor Setar
representing 56.75% of the total land use, followed by housing 10.99%, and traditional
residency 10.52%. Undeveloped area, which is vacant land, represents 3.69% of the total
land use.
Source: Buletin Perangkaan MADA 2003
3
Figure 1.1: Location of Alor Setar in the MADA Area
2.0
METHODOLOGY
This study was conducted in a few stages. The first stage was to identify the issue, which
is derived from the problem statement of this study. The key issue of this study is the
impact of paddy land conversions to the paddy production. A literature review was done
to help understand this issue in detail. The next stage was data collection. This stage was
the important part in determining the success of the study. The Primary data were
gathered through a series of interviews with the relevant parties, namely MBAS Planning
Department; MADA Statistics Department. The Secondary data were gathered through
reading the relevant materials such as books, bulletin, brochures and magazines.
All the data collected were analyzed by using the descriptive method. The results were
finally concluded and relevant suggestions on how to overcome the issue are given.
3.0
THE RESULT OF STUDY
This section reports three essential elements of the study; the conversion activity of
paddy land, the area of paddy land left after conversion and the pattern of paddy
production in Alor Setar.
3.1
The Conversion Activity Of Paddy Land
Two types of comparisons are made to examine the conversion activity of paddy land to
building use in Alor Setar. Section 3.1.1 below explains the nature of conversion
application of paddy land in general while section 3.1.2 specifically discusses the
conversion activity in Alor Setar during 1989-2003.
3.1.1 The Conversion of Paddy Land Among Mukims in Alor Setar
The applications to convert paddy land to building use are registered in the mukim where
the lands are situated. Mukims are categorized into 3 groups, which are mukims in Alor
Setar area, mukims close to Alor Setar and mukims situated far from Alor Setar. The
analysis discovers that Bukit Pinang, Anak Bukit, Alor Malai, Alor Merah, Hutan
Kampung, Mergong, Pengkalan Kundor and Kota Setar mukims have the highest number
of applications for conversion of paddy land to building use. It has 348 out of the total
461 applications. All these mukims are located in Alor Setar (Figure 3.1).
Meanwhile, the mukims close to Alor Setar has 58 applications. Among the mukims are
Derga Sungai Baharu, Gunong and Kubang Rotan. And the third group that mukims are
located far from Alor Setar where the number of applications is only 55. The difference is
not so noticeable between these two groups but it is believed that the number of
applications for conversion of paddy land will gradually increase for both mukims
categories. MBAS has already set up their plan to expand the administrative areas in the
future. It would be expected that the urbanization and development process in Alor Setar
gives a normal but significant impact and influence on the neighbouring areas. For
example, the upgrading of Sungai Petani to a Municipal Council status in July 1994 had
caused a massive increase in paddy and rubber land conversions.
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Source: Research Fieldwork, 2004
Figure 3.1: Categories of Mukim and Paddy Land Conversion Applications 19892003
Legend:
Alor Setar
Mukims inclusive of Alor Setar / Total conversion applications: 348
Mukims nearby Alor Setar / Total conversion applications: 58
Mukims far from Alor Setar / Total conversion applications: 55
3.1.2 The Conversion of Paddy Land in Alor Setar 1989-2003
Based on the interview held with the MBAS Planning Department, it is found that 80% of
the agricultural land in Alor Setar is dominated by paddy plantation. Other types of
agricultural land conversion applications are traditional residency (15%) as well as rubber
plantation (5%). However, the proportion is much smaller than the paddy land. As a
result, paddy land has become the main target to fulfill the land need from other sectors.
Generally, there is some amount of paddy land and orchards that have been taken to meet
the insufficient land for infrastructure project, housing, electronic factories as well as
high technology communication in this country (Fatimah, 1997). In Kedah, some paddy
land is abandoned and eventually converted to building or industrial use
(www://kedah.gov.my/webkedah).
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The Number of Paddy Land
Conversions
The number of conversion in Alor Setar during 1989-2003 is derived from the
applications registered to the mukims in Alor Setar. Mukims located within Alor Setar’s
boundary have already explained under section 3.1.1. The pattern of paddy land
conversion in Alor Setar can be seen in Figure 3.2 below:
60
50
40
30
20
10
0
1989
1991
1993
1995
1997
1999
2001
2003
Year
Source: Research Fieldwork, 2004
Figure 3.2: The Number of Paddy Land Conversions in Alor Setar 1989-2003
From the Figure 3.2 above, it is noticeable that the rising of paddy land conversion
applications occurred at the end of the 1989-2003 periods. It was the last five years
period (1999-2003), where a massive number of applications occurred. It is believed that
this phenomenon will continue because MBAS has already planned to enlarge the
housing and residential land uses from 21.49% up to 52.69% by the year 2005
(Rancangan Tempatan MPKS, 1996-2005). Many developers would take the advantage
from this move.
3.1.3 Types of Building Applications in Alor Setar 1985-2003
From the 348 conversion applications during 1989-2003, 207 were converted into
housing schemes (Figure 3.3). This occurred because Alor Setar’s development and
planning policy has allocated most of their administration area to be developed with
housing projects compare to commercial and industrial buildings. Other than housing
schemes, there are few types of buildings that were built on paddy land. Basically, the
development with less than four units is categorized as ‘personal residential’, ‘shop’
category is commonly used for commercial buildings, while the institutions, organization,
public infrastructure and religious buildings are included into ‘other’ category.
6
99
100
housing scheme
69
personal residency
80
shops
60
40
41 others
36
25
22
17 19
8
20
5
1
5
0
1989-1993
1994-1998
1999-2003
Source: Research Fieldwork, 2004
Figure 3.3: Types of Building Applications in Alor Setar 1985-2003
3.2 The Area of Paddy Land in Alor Setar 1989-2003
Based on Buletin Perangkaan MADA 2002, the total area of MADA paddy estate is
about 96,558 hectares. The paddy farm area in Alor Setar constitutes 17% but the size is
decreasing each year. Generally, there are about 3,000 parcels of paddy land in MADA
that have been converted into housing use. Thus, housing schemes are the dominant
development carried out in this area (http://agrolink.moa.my/moa1/newspaper/pertanian).
During the period of 1999-2003, the area of the paddy land had substantially decreased
because of the conversion to building. This situation can generally be related to a number
of reasons. First, by the end of 1998, Malaysia has started to recover from the economic
crisis that severely hit Southeast Asian economies. Second, in the year 2003, Alor Setar
has been upgraded to a municipal council and thus becoming a center of commercial,
industrial, residential as well as agricultural development. It is the focus of a wide range
of land uses (Wan Ibrisam Fikry, 1997). There are many developments carried out in
Alor Setar recently and these definitely have changed the pattern of land uses in the area.
Even though agriculture is still the main land use in Alor Setar, this situation might
change in the coming years. There is a big contradiction when MBAS made the planning
of Alor Setar land use. MBAS has increased the area of all types of land uses in Alor
Setar except for agriculture whereby it will be reduced from 6,684.02 hectares to
2,356.83 hectares by the year 2005 (Refer Table 3.2). This represents a 64.74% decline in
agricultural land use, which is a massive change in paddy land in Alor Setar. As
mentioned earlier, the main agricultural sector in Alor Setar is dominated by paddy
estate. Thus, paddy land is likely to be under greater threat of conversion into other uses.
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TYPE OF LAND USE
1. Housing
2. Commercial
3. Industrial
4. Institutional
5. Recreational
6. Agricultural Reservation
LAND USE IN 1992
Hectare
%
2,077.80
21.49
119.44
1.24
111.28
1.15
621.41
6.43
56.30
0.58
6,684.02
69.11
LAND USE PLANNED BY 2005
Hectare
%
5,095.10
52.69
440.34
4.55
660.09
6.83
884.07
9.14
233.82
2.42
2,356.83
24.37
Source: Rancangan Tempatan MPKS 1996-2005
Table 3.2: The Proportion Of Land Use in Alor Setar 1992 and 2005
3.3 The Paddy Production in Alor Setar
There are no specific data for paddy production in Alor Setar. This is because Alor Setar
is already included into the MADA scheme. However, MADA’s Statistics Department
assumed that the proportion of paddy production in Alor Setar is 17% of the total
MADA’s production. (Note: paddy production stated in this study was the final paddy
production. Production acquired after deducting factors that may reduce production such
as damaged paddy caused by flood or pesticides). So, the pattern of paddy production
totally depends on the area of paddy land. The table 3.3 shows the remaining paddy
production after conversion of paddy areas to building use in Alor Setar.
Year
Paddy Production
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
58,899.65
64,789.81
67,772.80
60,779.51
70,105.96
77,685.24
70,518.81
66,245.86
71,601.11
64,085.24
66,331.79
64,250.74
66,784.76
73,277.48
69,684.36
Reduction In Paddy
Production After Land
Conversion
4,523.29
4,976.51
5,197.35
4,660.20
5,564.48
12,123.05
11,989.75
10,866.06
11,244.70
10,894.46
23,878.81
23,122.61
24,041.67
26,379.84
25,086.65
Final Paddy Production
( In Tonnes)
54,376.36
59,813.30
62,575.45
56,119.31
64,541.48
65,562.19
58,529.06
55,379.80
60,356.41
53,190.78
42,452.98
41,128.13
42,743.09
46,897.64
44,597.71
Source: Research Fieldwork, 2004
Table 3.3: Paddy Production in Alor Setar, 1989-2003
Based on the Table 3.3, we can see that the total of paddy production in Alor Setar did
not show any signs of reduction at first. The paddy area in Alor Setar produces about
50,000 to 60,000 tonnes per year, starting from 1999, the production dropped below
50,000 tonnes per year. It was at this period that a large acreage of paddy land was
8
converted to building while most of the paddy farms were still producing. This has
caused the size of productive paddy area became much smaller and thus gave rice to less
production. Gibbons, Konick and Ibrahim (1980) in their research on the impact of Green
Revolution in Malaysia and Indonesia concluded that the real factor in determining the
paddy production in Malaysia is absolutely the area of paddy farm. Thus, the rising
acreage of converted paddy land in Alor Setar not surprisingly has given an impact to the
paddy production in the area.
4.0
CONCLUSION
The conversion of paddy land to building use in Alor Setar has become so active
especially during the past five years. Most of the converted paddy areas were still
producing. This has caused the area of productive paddy area to have decline and reduced
production. Pletcher (1998) has mentioned that the small size of paddy land in Malaysia
is a factor that inhibits a stable and sufficient rice stock. The MBAS development policy
seems to encourage development within their administrative area, particularly on paddy
land, which is still producing. More paddy land will be converted to building use,
especially in the suburban area since MBAS is upgrading its administrative area soon.
This provision will encourage more people to convert their paddy land into other
purposes especially for building. Moreover, there are no laws prohibiting this
phenomenon and thus it is not implemented in Alor Setar’s development plan.
Even though the declining paddy production in Alor Setar may not directly affect
Malaysia’s rice production, conversion of paddy land into other uses should be strictly
implemented. The Paddy Land Enactment 1917 was specifically enacted by the British to
impose paddy cultivation on paddy land (Ahmad Nazri 1985). Fujimoto (1983)
meanwhile explained that this enactment was regulated to ensure that rice production
could fulfill domestic demand. This can be achieved by implementing excellent planning
method in the paddy areas. Generally, we need to maintain the reservation of paddy land
while at the same time exercising stringent application procedure for converting paddy
land within the rice bowl areas. Above all, we must ensure that paddy land conversion
does not jeopardise the sustainable land development policy in Malaysia.
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WEBSITES
http://agrolink.moa.my/moa1/newspaper/pertanian/
http://agrolink.moa.my/english/latihan/index_plpp.html
www.kedah.gov.my/webkedah
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Utusan Malaysia, 26th May 1997.
The Star, 14th August 1997.
Utusan Malaysia, 1st January 2001.
Berita Harian, 10th January 2001.
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