by
Dato’ Abdul Majid Bin Mohamed
Director General
Department of Survey and Mapping, Malaysia
Mr. Chia Wee Tong
Director of Management and Development
Department of Survey and Mapping, Malaysia
And
Mr. Colin Chan Hun Seok
Licensed Land Surveyor/Member of the Land Surveyors Board
Peninsular Malaysia
ABSTRACT
This paper enumerates and discusses the various plans and reforms that have occurred within the Department of Survey and Mapping Malaysia (DSMM) in general and specifically the cadastral framework in the country. As a consequence of these evolvements, work procedures and related implications necessitate a clear and positive response from not only the staff that are involved and the Licensed Land Surveyors but also the more important element in the chain that is the client and the general public. This paper provides the reader with a commentary of these issues and will also summarise future plans and directions.
INTRODUCTION
In Malaysia, cadastral survey is the responsibility of the federal government but land is exclusively a state matter. Therefore, although the Department of Survey and Mapping (DSMM) is a federal department tasked with the responsibility of carrying out cadastral surveys, land alienation and dealings remain a prerogative of the respective state governments. The importance of cadastral survey is reflected in the work of the DSMM, in which it forms one of the two major functions of the department.
DSMM, established in 1885, is one of the oldest government departments in the country and it has experienced the tide of technological advancement for more than a decade, since the advent of computer technology in the field of surveying and mapping. During the early days, its main task was that of providing horizontal controls for the purpose of issuing land titles basing on the Torrens System. However, the modern day department has refocused its mission to one of "providing an efficient and high quality land survey and mapping services and geographical information dissemination system suitable for national requirements."
To achieve this mission and to fulfill the requirements of national development, DSMM has taken various steps to modernise both its field and office machinery. The advent of computer and the rapid development of Information Technology (IT) have resulted in widespread technological reforms in the field of cadastral surveying. Realising the importance and the potential of this new technology, DSMM had initiated its computerisation programme in the early 1980’s.
The most significant change that IT has brought about is the shift from conventional analog data to digital data and consequently the introduction of the concept of digital database which forms the base component for a Land Information Systems (LIS). This database in turn has been identified as having an indispensable role in national development as it aids the process of decision making in resource management and planning.
CADASTRAL REFORMS
Office Reforms
The DSMM’s modernisation programme began in the early 1980’s. After a successful pilot project to computerise its cadastral operation in the state of Johor, the initial phase of the department’s computerisation exercise was completed in 1995 with the nationwide implementation of the Computer Assisted Land Survey (CALS) system. The CALS system not only enables electronic processing of cadastral surveys but also introduced, for the first time ever in the history of the department, the concept of a Digital Cadastral Data Base (DCDB).
Being the sole official national organisation responsible for cadastral survey activities in the country, DSMM has undertaken the initiative to create and maintain the national DCDB as well as the dissemination of digital spatial information to end users. With the widespread proliferation of Geographic Information Systems (GIS) and the recently launched National Infrastructure for Land Information System (NaLIS) the database which forms the basic building block of a GIS is becoming increasingly significant. Its timely creation has thus been given top priority. Due to the shortage of manpower the department has planned to contract-out the data capture process to populate its DCDB. There are currently about 5.5 million cadastral lots that need to be converted into digital form in order to complete the DCDB.
In anticipation for the arrival and processing of large volume of out-sourced data and the maintenance of a large database, DSMM has decided to enhance the CALS system in order to assure the quality of out-sourced data and to optimise the performance of the entire system and the efficiency of the department’s information dissemination mechanism.
The entire upgrade exercise, which has been approved under the 7th Malaysian Development Plan (1995-2000) was divided into two phases; phase I involves the implementation of a Cadastral Data Management System (CDMS) and phase II the out-sourcing of data capture to populate the DCDB. The contract for phase I of the upgrade has been signed and the necessary hardware are currently being installed.
The CDMS when fully implemented will comprise of the following: -
The QAS is the quality assurance module for checking and validation of out-sourced data, which will be procured in phase two of this exercise, for the purpose of populating the DCDB in the state survey departments. The completed database will enable the department to better serve the needs of land-related agencies and both the public and private sectors.
The DIMS is an image management system that provides access to the Document Image Library either directly or remotely by the Counter Service, the various sections of the state survey department and the District Surveyors’ office via the network. The Document Image Library will consist of digital images of Certified Plans, which are legal survey documents that show the textual and graphical information of lots. There are at present about 600,000 Certified Plans in the various state survey departments which require to be scanned in order to build the Document Image Library. The scanning services also form part of phase I upgrade.
It is envisaged that with the full integration of the QAS, DIMS and the existing CALS the department will be able to provide a modern, sophisticated and ergonomic Counter Service through which it serves the public. The Counter Service will comprise of a Front Counter that is equipped with the latest office automation tools, furniture and seating, and state-of-the-art Information Technology for the use of both its staffs and clients. The modern Counter Service system will ensure efficient and effective dissemination of digital spatial data to end-users by providing facilities for purchase and ordering with credit card, debit card, ATM card as well as through the Internet and e-cash. In its effort to better serve the public and in enhancing its image as a whole, it is of paramount importance that the department provides an efficient Counter Service. A complete conceptual diagram of the CDMS is attached as Appendix A.
The CDMS will provides a window as a single point of access from any PC within the network, to information in any of the databases. A fully populated DCDB and Document Image Library together with their related attribute data will form the core data, which is much sought after by other government agencies, consultants, GIS users and the public. Specifically, the department will be able to improve and enhance its existing counter services and offer the following additional services to other land-related agencies and the general public. Clients will be: -
Field Reforms
In tandem with the technological change introduced in the office, modern equipment such as Digital Theodolite, Total Station and Global Positioning System (GPS) were introduced to further enhance the data acquisition capability in the field in support of a "field-to-finish" concept, as illustrated in Appendix B. The new instruments have fared well in the field, and a trial parallel run has demonstrated significant improvement in productivity, and hence increased cost-effectiveness.
All District Survey Offices are now equipped with Total Stations and implementing the "field-to-finish" workflow. These state-of-the-art surveying instrument with on-board memory and removable RAM/Data Cards have not only enhanced the data acquisition capability in the field but also greatly increased data quality. With this, the department is now set to actualise its "field-to-finish" vision by the end of 1998.
Global Positioning System (GPS) equipment is now not only smaller in size, but also cheaper in cost whilst maintaining accuracy standards acceptable for the densification of cadastral survey control network of points. With the full constellation of satellites available today, GPS technology with its all-weather capability has enable position determination to be carried out with relative ease and cost effectiveness. The department has been using GPS in densifying its geodetic control network since the arrival of this technology and is currently studying its feasibility for cadastral survey.
Coordinated Cadastral System
Malaysia has an excellent, rigid and rigorous cadastral system, which provides a secure basis for land and property ownership. The system consists of the surveying and recording mechanism in order to describe such information as area, location and boundary line of a given lot. However, it is not altogether faultless. Its major drawbacks are:
The drawbacks, as well as the demand from various user agencies for effective cadastral management, have prompted the DSMM, in collaboration with the University of Technology Malaysia (UTM), to embark on a pilot study on the feasibility of implementing a Coordinated Cadastral System for Malaysia. The study was conducted in the state of Melaka and focused on two major issues: -
The results of this pilot study indicate the vast potential of Coordinated Cadastral System and its feasibility for Malaysia. The whole concept of Coordinated Cadastral System may be simple, however, its full implementation would necessitate extensive administrative and procedural changes. As a follow-up to the pilot study, a contract research is currently in progress to determine: -
ORGANISATIONAL REFORM
Impact On The Organisation
The long-term impact of these reforms is yet to be seen. On the short term however, the impact of introducing the CALS systems to the organisation is keenly felt. As opposed to the mere introduction of a computer assisted process as was done in the 1970’s to hasten the survey computation and plan drawing processes, the CALS systems introduced the concept of an Information System into the organisation. The impact on the organisation is not only to shorten the traditional production line processes, but also to shift the emphasis away from these processes to greater awareness of the need for product diversification and a marketing strategy to better meet the requirements of the clientele. Meetings are being held periodically with the State Directors of Survey to evolve and agree upon new productivity norms for each of these processes and the overall annual productivity targets. Steps have also been taken to not only accept electronic Certified Plans and Computation Volumes but also to further simplify the information shown on them.
In tandem with this modernisation, the department has also been restructured in 1994 to enable it to face new challenges more effectively. The new organisation chart is not only flatter and less hierarchical; it also reflects a shift away from the traditional power domains. Several new sections were created under this new organisation structure, amongst them is a new research section that was created to provide the department with a leading edge in new technology in the field of survey and mapping. With this somewhat ‘leaner’ organisation structure, DSMM is now better set to meet the challenges of the cyber millenium.
The quantum leap by the department from a typical cadastral surveying and mapping organisation into that of a modern geographic data provider has been clearly reflected when the department launched its new logo recently. The new logo emphasizes the new role of the department supported by a dynamic administration and management team.
Human Resource Development
The rapid changes and modernisation introduced into the department would not be meaningful if they are not supported by an equally up-to-date and dynamic workforce. In meeting with the challenges of this daunting task, DSMM has designed and implemented a Human Resource Development Blueprint, to provide its staff with concurrent training to enable them to keep abreast with the advancement of surveying, mapping and IT. The HRD Blueprint has been devised as a long term strategy to systematically and continuously train and update the department’s staff with an ultimate aim of achieving full and complete IT literacy within the department and to prepare them for new challenges that the department will face in the coming millenium.
In addition to this, training is also sought at counterpart organisations overseas and at institutions of higher learning. A Continuous Professional Development (CPD) Programme has also been organised to ensure that personnel at the managerial level can remain up to date technically and professionally.
DIGITAL DATABASE AND RELATED ISSUES
Just as in the past when the department has to face problems related to survey design, it is now facing critical issues related to database design, updating and maintenance. The concurrency and integrity of the database are the very pillars upon which the legal and fiscal cadastre of the land administration system depends.
An interesting development of the CALS exercise is that the databases that were created initially for the exclusive use of the DSMM in executing its cadastral survey functions, have now become a much-sought-after data source by other government departments as well as private agencies. The transition from a single user to a multi-user/multi purpose database has created a new "status" for the department as well as increasing its responsibility as the custodian of these spatial data.
Data Standards
As a major provider of digital spatial data, DSMM is naturally involved in the development of spatial data standards. The demand for GIS compliant type of spatial data has resulted in the need for more advanced standards that will facilitate transfer of spatial data between suppliers and users. As such the existing Malaysian Standard Code of Practice for the Exchange of Digital Feature Coded Mapping Data (known as MS 1074) is currently under review by a working group known as WG12, formed under the purview of SIRIM. DSMM plays a lead role in the activities of WG12.
In this respect, at the regional level, the "Permanent Committee on GIS Infrastructure for Asia and the Pacific (PCGIAP)" was formed in July 1995. The function of this Permanent Committee is to provide a forum for countries from the Asia Pacific region to discuss and agree on, inter alia, GIS standards, GIS infrastructure and institutional development.
In this connection, Malaysia has also been accepted as a "Participating" member to the International Organisation for Standardisation (ISO). The acceptance has been conveyed to the Department of Standards Malaysia (DSM) as the ‘point-of-contact’ for Malaysia. Accordingly DSM has nominated DSMM to represent Malaysia at the meeting of ISO’s Technical Committee 211 which deals with standards for geographic information and geomatics. The majority of the ISO/TC 211 suite of standards for geographic information, which comprises of 20 parts, is expected to be completed by March 1998, and is expected to be adopted for use by Malaysia.
Sales Of Digital Data
The National Land Code (NLC) provided an open system, which enables anyone to obtain from the DSMM and Land Office up-to-date information on any land title. However the rights over possession and use of digital data is a matter of concern due to the enormous amount of data in digital form that can be easily made available to users. As such, in order to prevent illegal transmission of digital cadastral data by users to third party and to protect the interest of the department, the Fees and Royalties (Survey Data and Digital Mapping) Order 1997 has been approved by the Malaysian Government on the 26th February 1997. The Order provided copyright protection for all forms of digital survey and mapping data as well as regulating the fees and royalties chargeable by the department.
DSMM’s digital data are currently sold at a highly subsidised price. This is due to the service-oriented policy of the department as well as its inclination to promote the use and development in this field. It is expected that in future, in line with the Malaysia Incorporated Concept, there will be a change for a higher cost recovery policy. In consonance with the Government’s drive to increase productivity and recover costs, the department has made recommendations towards the formulation of a national charging policy regarding the sale of digital data, copyright and other related issues.
Towards A "Complete Cadastre"
Although the databases of DSMM, which contain mainly graphic land information, form a major part of the overall data required by Geographic Information Systems (GIS), they lack attribute information. The main attribute data of land ownership comes under the jurisdiction of the Department of Land and Mines (DLM) which is responsible for land registration.
In fulfilling the requirements of Act A832 of the NLC 1965, which requires inter alia, a revamp of the land administration system through the Computerised Land Registration System (CLRS) and also to meet user’s demand for Certified Plan information, the DLM has implemented CLRS systems throughout the country. It is envisaged that CLRS would be fully operational nationwide by end 1998. Effort is now underway to integrate the Land Office CLRS with the CALS system of the DSMM. With this integration, Certified Plans and Strata Certified Plans information will be made available to the various Land Registrars and District Land Administrators, through the public communication network. This integration, when fully implemented together with the National Infrastructure for Land Information System (NaLIS), to which DSMM is secretariat, would substantiate the department’s vision of establishing a "complete cadastre".
REFORM IN THE PRIVATE SECTOR
Commensurate with the change from analog to digital environment by DSMM, parallel moves have been taken by the private sector Licensed Land Surveyors to provide survey data in digital form. The Director-General of Survey and Mapping Circular 1 of 1997 has made it mandatory for Licensed Land Surveyors to submit survey job in digital form. The recent revision of the survey fees has also provided for this requirement. Contemporary Licensed Land Surveyors have thus equipped themselves with the technology and expertise to meet this requirement. Beside office automation hardware such as personal computers, digitisers, plotters and the appropriate software, they are also now equipped with appropriate modern field instrumentation such as Total Stations and GPS.
A programme of training at all levels is being conducted from time to time by the LSBPM to better equip the Licensed Surveyors to fulfill the product specifications which have become increasingly digital in nature and to meet the requirements of their clients.
LEGAL REFORM
Perhaps one of the most important pieces of legal reform towards promoting the fledgling IT industry is the amendment to the Evidence Act, 1950 (Act 56). The amendment, which came into effect in September 1993, allows documents produced by computers in digital form be accepted as legal evidence in a court of law.
Commensurate with the Evidence Act, studies are now being undertaken towards amending the National Land Code (NLC) with a view of accepting digital data into the title registration system. Concurrently, the Survey Regulations of the department are now being revised not only with the objective of accepting digital data but also to incorporate provisions accommodating new procedures brought about by technological advances in field and office instrumentation.
In addition to the introduction of GPS technology, the Survey Regulations are also being revised towards the acceptance of data stored in electronic data storage devices such as data loggers that are now frequently used together with Total Stations and other Electronic Distance Measurement (EDM) equipment. Office procedures are also being revised to allow the use of computers and electronic plotters, and the archival of data into electronic and optical mass storage devices.
THE ELECTRONIC GOVERNMENT
As Malaysia braces herself to leap-frog into the Information Age, it was strongly believed that a modern cadastre with a digital land information system and infrastructure have a strategic role in helping to propel the nation into the cyber millenium. Various high-impact cyberlaws such as digital signatures, multimedia intellectual property, computer crime, telemedicine development and electronic government, are being drafted under the Malaysian world-first Multimedia Super Corridor (MSC) project. It is hoped that these laws would help to overcome some of the teething problems such as copyright protection, system hacking and other information and system misuse, faced by the nation as it advances to become an international IT hub.
To speed the MSC evolution, the Malaysian Government has targeted seven multimedia applications for development by the year 2000. These "Flagship Applications" which will accelerate Malaysia’s progress toward Information-Age leadership are Electronic Government, Smart Schools, Telemedicine, R&D Clusters, National Multipurpose Card, Borderless Marketing Centres and the Worldwide Manufacturing Webs.
The DSMM and most other government agencies will be directly concerned with the implementation of the Electronic Government, which aims to use multimedia technology in creating a paperless administration. Eventually, most interdepartmental communications and interactions with the public will be conducted via electronic and multimedia channels. Toward this end, the DSMM modernisation initiatives will provide the department with a platform to materialise the Electronic Government.
With the implementation of the various modernisation programmes, DSMM will be transformed into a modern IT-oriented organisation to better serve its ever increasingly sophisticated clientele. The training provided under its Human Resource Development Programme will also change the department’s staff into a computer literate workforce in line with the Government’s aspiration of implementing the Electronic Government. As the department goes "fully digital" it will realise the full essence of the Electronic Government in all its three aspects of application, which are; citizen and business to government, intra government and inter government.
CONCLUSION
With its rapid rate of development, Malaysia faces an increasing complexity in land planning and management. An effective cadastre has a strategic role to play in rural and urban development plans of the country. By introducing the concept of databases with the full implementation of the CALS systems in 1995, and its pivotal role in the development of NaLIS, the DSMM has initiated a reform which has wide ranging implications for the department and the country as a whole. With the deployment of digital field survey and office equipment, the department is now poised to play an important role in the establishment of land related information systems in the country in support of the government’s effort in establishing an "Electronic Government".
It is indeed fortunate that with a somewhat generous budgetary allocation given to it, and backed by a core of hardworking and dedicated staff, the department has been able to harness recent advancements in Information Technology to implement its strategic plans for modernisation. In so doing, the department has been able to fulfill its mission in the provision of digital spatial data as well as the geodetic referencing framework in support of the development of geographic and land information systems in the country.
As can be seen, the department’s move to venture into the digital arena some ten years ago spearheaded a wave of change that is felt by the survey and mapping profession in the country. With the government vigorously supporting the growth of the spatial information (geomatics) industry, the challenge is for the DSMM to evolve strategies and structures such that it is well positioned to continue to serve the needs of the nation and lead the region.
Department of Survey and Mapping
Malaysia
Feb 1998 CadRef2