PENANG IS KNOWN for its old-time charm, even as rising skyscrapers punctuate the expanse of its skies. Its landscape is quickly changing with the introduction of new facilities and open public spaces like Gurney Bay. As I write this, my table shakes with the daily rock blasts echoing from the construction site of the 20km Pan Island Link 1 (PIL 1)—a highway project, part of the RM46bil Penang Transport Master Plan (PTMP)—that will soon snake across the now-serene hills.

Regardless of whether we see the spate of new developments and infrastructure planned for Penang as boon or bane, important questions about the inclusivity of these new structures should be raised. After all, a liveable city is an inclusive one.

So, what does Penang truly need, and are spaces in Penang prepared to be meaningfully inclusive for all? How can we ensure that everyone has equal opportunities to participate in the changes occurring in Penang?

What Does It Mean To Be Inclusive?

Penang, a city with diverse communities, has made great strides in its aspiration to become an inclusive state. The state government’s vision, Penang2030, seeks to elevate liveability through public welfare and infrastructure.

The conversation about inclusivity is nuanced and extends beyond physical spaces, encompassing comprehensive understanding of social, cultural, spatial and temporal dimensions.

The UN defines an inclusive society as one where every person, irrespective of their personal circumstances, feels included in civic, social, economic, political and decision-making processes, so that they can achieve their full potential. This may mean active, equitable and respectful participation in all functions of society.

“We first need to understand this notion of inclusion. It is very broad, and it is multidimensional,” says researcher Khoo Suet Leng, an academic-cum-researcher from Universiti Sains Malaysia who focuses on heritage management and urban studies.

Suet Leng emphasises that true inclusivity requires a nuanced approach that addresses the unique needs of diverse demographic groups, particularly vulnerable communities such as the urban poor, migrant workers as well as the elderly and disabled.

“Inclusion relates to notions of availability and accessibility for all. That is to say, everybody would have equal access to it,” she says.

“If you’re a policymaker, you need to really know your population and the demographic mix of your city by asking, ‘who are the people?’” she adds. “Only then can you address their diverse needs, expectations and aspirations, bearing in mind the limitations of the space.”

This includes considerations for people who are differently abled. The absence of ramps and elevators in public spaces, for example, can inadvertently pose challenges and hinder the free and equal participation of individuals with disabilities in public life. It then becomes imperative to not only recognise, but also actively address infrastructural hurdles that affect people’s needs and accessibilities.

“This extends from concepts like the right to the city—how people, regardless of socioeconomic class, use and reclaim spaces.”

This means examining the safety measures in place, understanding the needs of diverse groups and fostering an environment that accommodates all, creating a city where every individual feels secure, valued and supported.

“There is also the concept of intersectionality, which looks at how the unique combination of factors that make up an individual’s social and political identity, such as gender, sexuality, race, socioeconomic class, disability, et cetera can result in unique combinations of discrimination and privilege. For example, being a migrant worker and disabled will greatly aggravate the experiences of the individual,” says Suet Leng.

“We really need to look into whether our systems in place take these into consideration. We need to make our public spaces safe, integrated and inclusive. Otherwise, the New Urban Agenda Sustainable Development Goals (SDGs) that the state is committed to will be very broad motherhood statements that do not trickle down to the local level. We need to tailor interventions specifically to target marginalised communities.”

The SDGs are 17 universal blueprints created by the UN to address aspects of the environment, society and economy. Almost all are what the Penang2030 vision is based on, including SDG 11, which aims to “make cities inclusive, safe, resilient and sustainable”. It is also the most important goal for Malaysia as a nation, according to Urbanice Malaysia, as 77% of Malaysians currently reside in urban areas, as of 2022.

However, Penang confronts significant challenges in achieving this, requiring a medium-to-long-term approach for effective development.

Conscious Inclusion & Empowerment

Let us take the example of digitalisation. In April 2020, the Penang State Government established Digital Penang as an agency to oversee and facilitate a more digitally connected as well as creative and economically competitive Penang. DP has aspired to make online access easier by offering free digital classes for older adults. However, there are always people of different age groups and access who remain excluded.

Mufeez (last name withheld), who is of Rohingya descent, observes that there are particular challenges faced by refugees and migrants in accessing fundamental services like healthcare and education.

“The healthcare system is easier to navigate for Malaysians and those who are educated. But for people who are illiterate, it is complicated,” says Mufeez, who has been living in Malaysia for more than nine years now.

Mufeez says that refugees can access social media platforms and learn about it from friends through their phones. Communication apps like WhatsApp are a space for information sharing—news is quickly shared and disseminated among the community here.

“But they are migrating to the wrong platform—like TikTok or games apps,” he says.

According to him, there is a lack of knowledge when it comes to using technology meaningfully. “There needs to be better consultation with and training for community members.”

The impact of digitisation transcends to public transport as well, which according to a 2019 report by New Straits Times [1], is only used by 5% of Penang’s road users. Mufeez says that commuters who are from the migrant communities may face issues once payment turns cashless.

“It is already a challenge. Migrant communities are still using cash on a daily basis. So, when the Penang ferry initiated the cashless payment option, a lot of people had problems and had to ask other passengers how to get on the ferry.”

“Those who come to our clinic from across the island are sometimes forced to use e-hailing services even though money is tight, because they don’t know how to use Touch ’n Go. So, even though the change is small, it significantly affects them.”

“The state is not restricting or discriminating against them, but indirectly, these people are excluded,” he observes, adding that he is concerned that as more services turn cashless, it could also affect other groups in Penang, including the elderly. “They need to migrate to these new platforms, but many are afraid of using new technology.”

Mufeez underscores the significance of empowering communities through consultation and training, so that they can navigate these transformations successfully. Efforts are already underway from refugee community-based organisations such as the Penang Equal Start coalition to explore digital inclusion, safety and access.

Is Penang Ready?

“A city peppered with UNESCO listings and global accolades can make it more attractive to investors, resulting in more economic benefits—an outcome favoured by policymakers and political leaders,” says Suet Leng.

While commendable from an economic perspective, she worries it could be imbalanced from a socio-inclusion standpoint. “On the flip side, you have pockets or groups of people who bear the brunt of inequality and economic disparities due to rising costs of living, issues of affordability in terms of housing, transportation and the like… You have the winners and the losers.”

Suet Leng says that there are laudable private-run public spaces such as Hin Bus Depot, which has become a popular creative haven in the centre of George Town. Such individual initiatives reflect a clear desire for representation that extends into various facets, including cultural acknowledgment.

Recognising the need for diversity in voices, Nur Aq’illa binti Abd Latif and Nur Syairah binti Saffaruan are two passionate entrepreneurs who are creating community-run, free open mic events and art spaces for local artists in the hope of nurturing a more inclusive art community that supports underrepresented local talent.

“Art events are usually organised within a small circle of people. So, we want to welcome more newcomers—give platform to new and underrepresented artists to build their portfolio and experience,” says Nur Syairah binti Saffaruan, who runs Makanlena, a culinary gem along Armenian Street that serves traditional Southern Malay cuisine.

Nur Aq’illa’s quaint cafe, Langit Senja Kopi, is also within the same unit, and she shares the same sentiments. She divulges that she is looking for a more diverse, community-led cultural ecosystem that supports new artists who may not have the same resources as the more established or international artists who are based in Penang.

“Before this, I’ve not seen a space that is specially focused on Malay literature. I love puisi and poetry readings, so I’m trying to provide an alternative space for local poets—there are many—and especially for local independent artists from Penang,” says Nur Aq’illa.

She and her peers have been holding open spaces for artists to share poetry, dance, music and visual art. She shares that artists have since brought their poetry and artwork elsewhere, and created their own art spaces across other parts of Malaysia.

“There is a bigger art community in Penang from different layers of society,” she says.

Nur Aq’illa envisions more support from local authorities promoting the different kinds of art that celebrate Penang’s diversity and heritage. Support such as amplifying these events and providing financial assistance, she says, would help the dedicated community spaces sustain their endeavours, which currently operate on a voluntary or self-funded basis.

Unfortunately, many of these spaces, due to inadequate funding, find themselves short-lived, and often face the threat of imminent closure. The closing of Penang House of Music, attributed to a lack of institutional support and financial challenges, serves as one example.

“The government has the power to help change society’s perceptions toward art, to celebrate and accept the diversity in art,” she says.

“This may mean opening up spaces for other kinds of art, and reducing rental costs,” says Nur Aq’illa. She also hopes for a more sustainable ecosystem that recognises forms of art and music ranging from traditional music like gamelan to alternative forms such as metal and punk; there is demand.

“There are so many people who want to berkarya and make art—but there’s just no institutional support or space for it. And when there are individuals who want to create that platform, there’s just not enough space that is affordable.”

To her, an inclusive place involves a community that uplifts each other. “When we all support each other in an intimate and welcoming way, this can become a safe space and invite more collaboration.”

Ensuring Meaningful Participation

Perhaps in essence, an inclusive space is one that is collaborative, considers different voices and perspectives, and actively engages with the communities that reside within that space. To do this would mean opening up dialogues for marginalised communities who might otherwise struggle to have their voices heard.

Suet Leng emphasises the need for integrated and monitored efforts, urging policymakers to collaborate with stakeholders in understanding and addressing multidimensional inclusion.

“We need to have more targeted interventions with different stakeholders to address the multi-dimensionality of inclusion. It is not just social or spatial, but it is found in its various forms and manifestations,” she says.

“Even though we say that we are committed to the SDG No. 11 to have inclusive cities and the New Urban Agenda to leave no one behind, do we really know who the marginalised groups are?”

“It’s very difficult for people at the bottom to ask for help,” says Suet Leng. “When you invite them for engagement or consultation, they can tell you what they need—their expectations and aspirations—but at the end of the day, the driver or the facilitator would have to be the government or the authorities.”

“As you engage more and more people, and people start to take ownership of things, that’s where the magic happens,” says Suet Leng.

With inclusivity at the centre of the government’s action plans and strategies, and through continued commitment and collaboration, Penang can navigate the challenges that come with development and economic progress while ensuring that no one is left behind.