1. General information
Location and description of the intervention
City or FUA
Penang
Region
Asia
Native title of the NBS intervention
Penang Nature-based Climate Adaptation Programme
Short description of the intervention
Penang is a state located in north-western Peninsular Malaysia with an area of 1,049 km2. It comprises two local authorities, Penang Island and the mainland. The former is further divided into five administrative districts which are further divided into mukims (sub-districts). Two urban mukims located on the island – George Town and Bayan Lepas – are the focus of the proposed nature-based solutions (NBS) climate adaptation programme. The programme was launched in 2022 by UN-Habitat in collaboration with the Ministry of Environment and Water (KASA) of Malaysia, Penang Island City Council (Majlis Bandaraya Pulau Pinang - MBPP), Department of Irrigation and Drainage (Jabatan Pengairan Dan Saliran - JPS) and Think City (a wholly-owned subsidiary of Khazanah Nasional Berhad (the sovereign wealth fund of the Government of Malaysia)). (Ref 1)

The implementation of the project responds to several challenges posed by climate change including heatwaves and flooding (Ref 4). The main goal of the programme is to enhance urban resilience and reduce human and ecosystem health vulnerability to climate change impacts and extreme weather events by implementing nature-based solutions (NBS) such as tree-lined streets, pocket parks, green parking spaces, green facades and rooftops, urban agriculture and blue-green corridors to reduce surface temperatures and stormwater runoff, as well as to increase social resilience and build institutional capacity (Ref 1, 3).

Address

10200 George Town
Malaysia

Total area
1049000000.00m²
NBS area
272700000.00m²
Timeline of intervention
Start date of the intervention (planning process)
2019
Start date of intervention (implementation process)
2022
End date of the intervention
2027
Present stage of the intervention
Goals of the intervention
The intervention has several goals focusing on many levels ranging from aspects that specifically address the community's needs to larger challenges pertaining to the cities involvement as well as the country of Malaysia:
1. To reduce flooding and the urban heat island effect (UHI) and overall temperatures (surface temperatures) by employing a variety of nature-based solutions (urban greening, urban agriculture, and green rooftops).
2. To strengthen the capacity of local communities to respond to extreme weather events by raising awareness and capacity development training, focusing on women, youth, and other vulnerable communities.
3. To promote urban agriculture and food security at different levels, including training.
4. To strengthen institutional capacity and coordination between different stakeholders in climate-related issues, improving response to extreme weather events.
5. To develop the first municipal climate change adaptation programme, providing reference and methodology (as well as specific tools), for other cities in Malaysia to adopt, via a knowledge transfer platform.
6. To develop a list of climate-resilient trees for Malaysia.
7. To develop a public health programme that will include a pilot project to monitor heat-related illness in selected hospitals in Penang providing reference and methodology (as well as specific tools), for other cities in Malaysia to adopt. (Ref 3)
Quantitative targets
1. 31,000 trees to be planted, within three years (2022-2025) (Ref 4).
2. To reduce overall urban atmosphere temperatures by 1°C within 5-7 years after project completion (Ref 3).
3. To implement 240 training sessions on urban agriculture gardening (Ref 3).
4. To plant an area of 10,555 sqm of vacant spaces and convert it into pocket parks (Ref 3).
5. To construct green parking with 2975 trees to be planted in car parks (Ref 3).
6. To install green facades in a vertical area of 1100 sqm (Ref 3).
7. To install green rooftops on an area of 3750 sqm (Ref 3).
8. To green four waterways (14 km in total) and 32 streets and road corridors (42 km in total) (Ref 3).
9. To green 17,220 sqm of the Penang River (Ref 3).
10. To build 1,880 m2 of swales (Ref 3)
10. To develop 12,080 sqm of upstream retention areas (Ref 3).
11. To develop 2545 sqm of infiltration wells at downstream areas (Ref 3).
12. To benefit 343,739 beneficiaries (32479 direct and 311,257 indirect) of which the elderly population of 21% (41,000) is located in a flood-prone area (Ref 3).
13. To strengthen social resilience by targeting 10,000 secondary school students (by creating game and technology-based learning), as well as 16,000 women and girls (through the diverse engagement of different topics from extreme heat to urban agriculture) (Ref 3)
14. To create a knowledge transfer platform that will help the monitoring of the flood impacts and temperatures reduction, among others (Ref 3)
Monitoring indicators defined
1. Number of trees planted
2. Number of people benefiting from the intervention
3. Degrees reduced in the urban atmosphere temperature
4. Number of training sessions implemented in the urban agriculture programme
5. Size of the area available as pocket parks, green facades, rooftops, swales, wells
2. Types of climate-resilient tree species planted (based on Atlas of Climate Resilient Trees (ACResT)), part of the knowledge platform (Ref 2, 3)
Climate change mitigation: What were the goals of the NBS?
Implementation activities
The planning stage of the project started in 2019 in partnership with UN-Habitat, Ministry of Environment and Water (KASA), Majlis Bandaraya Pulau Pinang (MBPP), Jabatan Pengairan Dan Saliran (JPS), and Think City (a consultancy and project delivery partner). During the development of the programme, a multipronged community and stakeholder consultation methodology was undertaken that included a series of one-on-one meetings, two workshops, six focus group discussions (FGD) and a survey. The FGDs were held in communities vulnerable to climate change impacts, a) UNESCO World Heritage Site (vulnerable to floods, heat stress and extreme weather events), b) Sungai Pinang community (the most flood-prone area of the city), c) Air Itam (low-income communities). The workshops were attended by 77 local people, the focus groups by 53 and the survey were answered by 324 people. An additional workshop on climate adaptation was held by the Penang State Government in November 2019 as part of its Penang 2030 initiative and was attended by 35 participants from multiple organisations. It was also mentioned that remote sensing will be involved with scenario and impact modelling (to be developed by the National Hydrological Institute Malaysia (NAHRIM) and local university Universiti Sains Malaysia (USM) experts will also assist in developing the detailed plans (Ref 1, 2, 3). In 2022 an opening session for the whole project was organized with the participation of the stakeholders. The session contributed to the issuing of an inception report that discusses plans pertaining to the greening stages of the intervention. Discussions revolved around deciding what types of trees, resistant to climate change, should be introduced, how they can be monitored, and what can be measured to prove their benefits (Ref 6). It is expected that the project will plant around 31,000 trees. (Ref 4)
NBS domain and interventions
Ecological domain(s) where the NBS intervention(s) is/are implemented
Blue infrastructure
Rivers/streams/canals/estuaries
Community gardens and allotments
Allotments
Green areas for water management
Swales and filter strips
Grey infrastructure featuring greens
Alley or street trees and other street vegetation
Riverbank/Lakeside greens
Green parking lots
Nature in buildings (indoor)
Green walls and ceilings
Nature on buildings (external)
Green roofs
Green walls or facades
Parks and urban forests
Pocket parks/neighbourhood green spaces
Type of Green Wall
Please specify the number of plots or allotment gardens
Unknown. However, vacant spaces with potential for urban agriculture were identified and areas were calculated as of September 2022 (Ref 3).
Vegetation Type
Please specify how many trees were planted
Unknown. However the target is 31,000 trees between 2022-2025 (Ref 2).
Amenities offered by the NBS
Services
Expected ecosystem services delivered
Provisioning services
Food for human consumption (crops, vegetables)
Regulating services
Local climate regulation (temperature reduction)
Carbon storage/sequestration
Flood regulation
Cultural services
Intellectual interactions (scientific and / or educational)
Social and community interactions
Scale
Spatial scale
Meso-scale: Regional, metropolitan and urban level
Beneficiaries
Governance
Non-government actors
Non-governmental organisation (NGO) / Civil society / Churches
Researchers, university
Citizens or community groups
Please specify the roles of the specific government and non-government actor groups involved in the initiative
Implementing entity is UN-Habitat and the executing entities include the Ministry of Environment and Water (KASA) of Malaysia, Penang Island City Council (Majlis Bandaraya Pulau Pinang - MBPP), Department of Irrigation and Drainage (Jabatan Pengairan Dan Saliran - JPS) and Think City (a wholly-owned subsidiary of Khazanah Nasional Berhad (the sovereign wealth fund of the Government of Malaysia)). Citizens were involved in the consultation process when the project was developed. Researchers and experts will be involved in developing a scenario and impact modelling as part of the project; Also researchers were the ones studying the green spaces of Penang so they will know what needs and where to implement green solutions.
Private actors: The project also includes a capacity building scheme where private actors might be asked to see if they'll want to pay for greening as it might bring them revenues. The project aims to address the losses produced by extreme events to private property and companies. It is to understand if they can develop local financial sustainability models. (Ref 1, 2, 3)
Key actors - Other stakeholders involved (besides initiating actors)
National government
Local government/municipality
Citizens or community group
Researchers/university
Private sector/corporate actor/company
Multilateral organisation
Policy drivers
NBS intervention implemented in response to an Regional Directive/Strategy
No
NBS intervention implemented in response to a national regulations/strategy/plan
Yes
Please specify the national regulations/strategy/plan
The Nature-Based Climate Adaptation Programme for the Urban Areas of Penang Island is consistent with the 11th Malaysia Plan. It is mentioned that the programme is fully aligned with the Malaysia Third National Communication and Second Biennial Update Report to the UNFCCC, developed by the Ministry of Energy, Environment, Science, Technology and Climate Change and finalised in 2018 in terms of the development of relevant adaptation strategies, as well as National Policy on Climate Change, National Policy on Biological Diversity 2016-2025, among many others. The programme is also in accordance with two national regulation plans, the National Landscape Master Plan and the National Urbanisation regulations, which provide mostly guidelines but also a few technical standards. (Ref 3)
NBS intervention implemented in response to a local regulation/strategy/plan
Yes
Please specify the "local regulation/strategy/plan"
The City Council of the island of Penang has adopted the State’s Cleaner Greener Penang initiative as a general road map to deliver a cleaner and greener city and improve the quality of life in Penang. (Ref 3)
Mandatory or voluntary intervention
Mandatory (based on policy)
Intervention is mandatory
Enablers
Presence of specific city-level GI/NBS vision/strategy/plan - mentioned in connection to the project
Yes
Please specify
The City Council of the island of Penang has adopted the State’s Cleaner Greener Penang initiative as a general road map to deliver a cleaner and greener city and improve the quality of life in Penang. (Ref 3)
Presence of specific city-level GI/NBS section/part in a more general plan - mentioned in connection to the project
Unknown
Presence of city network or regional partnerships focused on NBS - mentioned in connection to the project
Unknown
Presence of GI / NBS research project - mentioned in connection to the project
Yes
Please specify
A Climate resilient trees database -Atlas of Climate Resilient Trees (ACResT)- has been developed as an online, open-collaborative platform, to discover and document climate resilient tree species in the country, with the aim to guide city planners and landscapers to place the right tree at the right place. It will also be employed in the present intervention. The platform is a result of the Climate-resilient Urban Tree Species Study for Malaysia, research spearheaded by Think City in 2020, which documented 251 species (Ref 2). It is also mentioned that several knowledge-exchange partnerships will be established, most notably with the Smart Utilities Research Institute of Tsinghua University Innovation Center in Zhuhai, China, to discuss the design of sponge cities (Ref 3).
Subsidies/investment for GI / NBS in the city - mentioned in connection to the project
Yes
Please specify
Concomitently with the current project, the City council allocated circa 670k Euro for tree planting, green initiatives and back lanes greening for the year 2020/2021. The Penang state government has allocated for the year 2020/2021 RM150 million (32 mil. Euro) in funds to implement 8 flood mitigation projects to reduce flood occurrence risk in hotspot areas funds for flood mitigation projects, which will include mostly drainage infrastructure and approximately 15% of nature-based solutions. (Ref 3)
Co-finance for NBS
Unknown
Co-financing governance arrangements
Unknown
Was this co-governance arrangement already in place, or was it set up specifically for this NBS?
Financing
What is/was the Cost/Budget (EUR) of the NBS or green infrastructure elements?
4.82 mil EUR (Ref 3)
What are the total amount of expected annual maintenance costs?
Unknown
What is the expected annual maintenance costs of the NBS or GI elements?
Unknown
Please specify cost savings
Unknown
Please specify total cost (EUR)
9,294,600 EUR of which approx. 1.4 mil. EUR already transferred (Ref 1).
Non-financial contribution
Unknown
Which of the involved actors was motivated by this model?
Please specify technological innovation
The programme will pioneer the use of NBS solutions in Malaysia. It is designed to be demonstrative / proof of concept with a strong knowledge codification component so that it can be scaled in Malaysia and elsewhere in the region. (Ref 3)
Please specify social innovation
I'd argue the intervention presents a social innovation through a governance component as at a local level, a participatory approach involving communities and local authorities in planning and implementation will lead to increased local awareness and knowledge on climate change risks and adaptation. Pilot projects will contribute to sharing lessons and evaluating the best strategies. (Ref 3)
Please specify novelty level of the innovation
There is no indication that nature based solutions have previoulsy been implemented in Malaysia under the form they took in the current project.
Please specify Replicability/Transferability
The programme will pioneer the use of NBS solutions in Malaysia. It is designed to be demonstrative / proof of concept with a strong knowledge codification component so that it can be scaled in Malaysia and elsewhere in the region. (Ref 3)
Impacts, benefits
Description of environmental benefits
- Lowered local temperatures: As the project is fairly new and still ongoing, reports regarding results are not issued. Nevertheless, it is expected that the green spaces will impact UHI reduction. With other case studies where nature-based solutions have been implemented, it is reasonable to expect temperatures to decrease approximately 1-1.5°C five to seven years in surrounding areas after project implementation. (Ref 3)

- Increased protection against flooding: Through the climate-resilient trees database, it is expected to discover and document climate-resilient tree species in the country, with the aim of guiding city planners and landscapers to place the right tree in the right place (Ref 2). Furthermore, the project is expected to deliver green facades as well as to develop blue-green corridors/swales that are predicted to reduce flooding with stormwater retention and temporary storage of stormwater. (Ref 3)

- Enhanced carbon sequestration: As urban greening is a strong component of the project it is expected that through the implementation of street trees, rooftop gardens, pocket parks and blue-green corridors carbon sequestration will be enhanced. The nature-based climate adaptation programme for the urban areas of Penang island includes the greening of four waterways (in a total of approximately 14 km) and 32 streets and road corridors (in a total of approximately 42 km). As a matter of fact, " the project’s proposed outcomes take into account sustainability; in terms of nature-based solutions, both financial and environmental sustainability, as these are far more cost-effective than existing alternatives, and mitigate climate change by sequestering carbon." (Ref 3)
Description of economic benefits
It is expected that the implementation will reduce losses on private property due to flooding as well as reduce losses on public infrastructure due to flooding and reduce disruption to business due to flooding. (Ref 3)
Description of social and cultural benefits
- Increased involvement of locals: The project is expected to reach over 10,000 secondary school students through learning games and training in urban agriculture on the school grounds. It will also include training in climate change-specific issues, particularly in extreme weather events and disaster situations, but also in the science behind climate change and in mitigation strategies. (Ref 3)
- Health and wellbeing: According to the project documentation, it is expected that the intervention will improve physical and mental health as well as encourage physical exercises: "Using NBS for the climate adaptation of urban areas in Penang will also result in several co-benefits in terms of public health and wellbeing. Research over the past years has significantly developed and demonstrated the following effects: reduced anxiety and depression, decreased stress, increased immunity, better control of non-communicable diseases (NCDs), increased vitamin D production (sun exposure), denser social connections, reduced aggression and improved learning and intellectual development in children. The pathways to these benefits are interrelated and mediated for example, green and thermo-comfortable spaces encourage outdoor physical activity which in turn is linked to a reduction in depression, reduction in weight, prevention and better management of NCDs." (Ref 3)
- Increased knowledge about nature-based solutions: It is expected that the project will reach 16,000 women and girls through a series of engagements with NGOs and climate experts to co-produce adaptation resources on various topics from extreme heat to urban agriculture and establish a network of peer educators for distribution and building a social support network. (Ref 3)


Type of reported impacts
Indicators
1. Number of trees planted
2. Number of people benefiting from the intervention
3. Degrees reduced in the urban atmosphere temperature
4. Number of training sessions implemented in the urban agriculture programme
5. Size of the area available as pocket parks, green facades, rooftops, swales, wells
2. Types of climate-resilient tree species planted (based on Atlas of Climate Resilient Trees (ACResT)), part of the knowledge platform (Ref 2, 3)
Analysis of specific impact categories
Job creation: The NBS created ...
Negative impacts: Did the project cause any problems or concerns?
No information was found regarding negative impacts of the project
COVID-19 pandemic
Unknown. It is not mentioned whether Covid19 had any effects on the implementation of the project.
Methods of impact monitoring
Evidence for use of assessment
Presence of an assessment, evaluation and/or monitoring process
Yes
Presence of indicators used in reporting
Yes
Presence of monitoring/evaluation reports
Yes
Availability of a web-based monitoring tool
No evidence in public records
Impact assessment mechanism
Name of any specific impact assessment tools
Unknwon
Use of GIS in mapping impacts
Yes
Citizen involvement
Citizens involvement in assessment/evaluation
Yes
Mode(s) of citizen involvement in evaluation/assessment
Citizens involvement in the analysis of the assessment/evaluation
Yes
Please specify
At a local level, a participatory approach involving communities and local authorities in planning and implementation will be implemented leading to increased local awareness and knowledge of climate change risks and adaptation. Pilot projects will contribute to sharing lessons and evaluating the best strategies. (Ref 3)
Follow-up to the evaluation / assessment
Unknown
References
List of references
1. Adaptation Fund (2022), Nature-based Climate Adaptation Programme for the Urban Areas of Penang Island, available at https://www.adaptation-fund.org/project/nature-based-climate-adaptation-programme-for-the-urban-areas-of-penang-island-2/ (accessed 27-1-2023)
2. Think City (2022), Climate Resilient Tree Database Set to Help Citymakers Place The Right Tree At The Right Place, available at https://thinkcity.com.my/wp1/wp-content/uploads/2022/11/221101_PR_ACResT-Launch.pdf (accessed 27-1-2023)
3. Adaptation Fund (2022), Request for Project / Programme Funding from the Adaptation Fund, available at https://www.adaptation-fund.org/projects-document-view/?URL=https://pubdocs/en/230501604450840750/14501-PNBCAP-programme-proposal-20-4-Clean.pdf (accessed 27-1-2023)
4. Investor (2022), About 100,000 trees to be planted in Penang to counter climate change, available at https://klse.i3investor.com/web/blog/detail/savemalaysia/2022-04-23-story-h1621602617-About_100_000_trees_to_be_planted_in_Penang_to_counter_climate_change (accessed 6-2-2023)
5. AcRESt, Atlas of Climate Resilient Tree Species, (no date), available at https://acrest.com.my (accessed 6-2-2023)
6. Adaptation Fund (2022), Inception Report, available at https://www.adaptation-fund.org/projects-document-view/?URL=https://spxdocs/en/081450010112220814/14501_UN%20Habitat%20_Penang%20Island%20nature%20based%20solutions%20project%20_Inception%20Report_.pdf (accessed 27-2-2023)


Comments and notes
Additional insights
It is estimated by the World Health Organization that by 2050, Malaysia will experience 200 days per year of heatwaves (in a scenario of a 3°C increase by 2100), compared with 20 days in the 1980s. Flooding is also a major issue in Malaysia and Penang, caused by rapid urbanization, an increase in weather patterns, as well as heavy rains. (Ref 4)
Public Images
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Nature-based Climate Adaptation Programme for the Urban Areas of Penang Island
Nature-based Climate Adaptation Programme for the Urban Areas of Penang Island
Adaptation Fund Secretariat
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Flood in Penang
Flood in Penang
Think City Malaysia
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Greening Penang
Greening Penang
https://www.iurc.eu/wp-content/uploads/2021/07/2.3_Platform-Talk_Think-City_Sofia-Castelo.pdf