Fair Boundaries for Terengganu

(for Malay version, click here)

Any form of redelineation exercise must ensure Malaysians are treated fairly (both at DUN (State Legislative Assembly) and Federal level) and represented in an appropriate manner. In order to achieve these goals for Terengganu, we must do the following:

• Respecting of the ratio of Parliamentary constituencies to DUN constituencies in a given state. Since there is no 2/3 majority in Parliament, the Parliamentary seat count for Terengganu is 8. The current DUN Size is 32 and this is a multiple of the Parliamentary constituencies in Terengganu (8x4). When the DUN size is a multiple of the Parliamentary constituencies, the first step to ensure equalization of electorate (commonly known as voters) size of the constituencies of DUN and Parliamentary size is achieved. For Terengganu, we do not see the need to add DUN constituencies but rather Terengganu deserves an additional Parliamentary constituency. This will address interstate malapportionment where Terengganu is at the losing end.
• A Parliament constituency or DUN constituency shall not have an electorate size more than +/-15% of State Electoral Quota (for DUN and Parliament). State Electoral Quota stipulates the average of electorate size for DUN and Parliament Seat.
• For Terengganu, the urban population accounts more than 65% of the population and more than 85% and 90% of the population in each district (Daerah) has access to internet subscription and mobile phones at home respectively. Hence, there is no difficulty in reaching to any electors in any rural constituency or country districts. Hence, all constituencies (DUN and Parliament) should be within +/-15% of the State Electoral Quota.
• Constituencies are to be allocated to each council where we strive to have every DUN constituency to be within a district (so long the equalization is attained). However, Parliamentary constituency should not be limited by district or local council boundaries as equalization is the first priority in the redelineation exercise.
• DUN constituencies are drawn to best fit the mukim boundaries, Blok Perancangan (BP), township sections, contiguity and transportation networks. We must acknowledge poorly drawn polling districts by Election Commission (EC) makes some boundaries of DUN and Parliament constituency highly irregular.

This application was built in response to  State Government of Terengganu's  proposal to increase the number of DUN Constituencies.

(Coming soon - a link for future objectors for redelineation exercise and another link for further data study)

Up to 1983, our Federal Constitution via the 8th Schedule (Sub-section 4 (2) mentioned that the number of DUN constituencies should be the same or multiple of the number of Parliamentary constituencies in a given state. In 1983, this requirement was removed from the constitution and such ratio are rarely adhered over the years.

Among the 16 states and territories in Malaysia, Terengganu is one of the 3 states where the principle of 8th Schedule Sub-section 4(2) is honoured (alongside with Perlis and Pahang). Terengganu has not experienced seat increase since 1984.

Hence, we do not see the need for Terengganu to increase its DUN size as the current ratio is respected. However, we must acknowledge Terengganu has the second highest number of electors (later known as voters) per Parliamentary constituency after Selangor. A Parliament constituency in Terengganu on average has twice the voter population of a Parliament constituency in Perlis. Both states have nearly equal proportion of urban population. This unequal size of Parliamentary constituency voter population among states is called interstate malapportionment.

IMAGE 1: INTERSTATE MALAPPORTIONMENT AMONG PARLIAMENTARY CONSTITUENCIES'S ELECTORATE SIZE AMONG STATES IN MALAYSIA

If the Parliament Size (for Dewan Rakyat) of 222 is retained and 27.7% of seats allocated for Sabah and Sarawak (retaining 1963 proportion), Terengganu deserves 9 Parliamentary Constituencies, not 8. Members of Parliament should lobby for one Parliamentary constituency increase at minimum for Terengganu (subject to Dewan Rakyat Size). If the Parliament Constituency for Terengganu is adjusted to 9, Terengganu has the case to increase the DUN Size to 36 (to maintain the ratio (9 x 4)).

13th Schedule outlines the guiding principles of redelineation (found in section 2). Section 2 (c) states:

"the number of electors within each constituency in a State ought to be approximately equal except that, having regard to the greater difficulty of reaching electors in the country districts and the other disadvantages facing rural constituencies, a measure of weightage for area ought to be given to such constituencies"

Let's focus on the term "except that, having regard to the greater difficulty of reaching electors in the country districts and the other disadvantages facing rural constituencies".

Currently, Terengganu has:

• 67.2% of its population residing in  urban areas 
• all districts where more than 85% and 90% of population has internet subscription at home and access to mobile phone respectively

In short, the concept the exception of 2(c) will not arise. A DUN constituency (and also the Parliamentary Constituency) should have an electorate size that does not deviate more than +/-15% of the State Electoral Quota.

State (DUN) Electoral Quota refers to average electorate (or voters) size for state constituency for a state. In 2020, Terengganu has 763387 registered voters. State (DUN) Electoral Quota is calculated as the division of total electors (voters) by number of state constituencies (for Terengganu- currently, it is 32). Average state constituency size is 23855 voters. For Parliament constituency, average constituency size is 95423 voters.

During a redelineation process, due to shapes of polling districts and consideration of local ties, it is impossible to have a constituency voters size of 23855. Hence, an acceptable limits should be used. We opt Merdeka era level limits of +/-15% from the State (DUN and Parliament) Electoral Quota. Below here are upper and lower limits for DUN and Parliamentary constituency electorate size

Upper Limit (for DUN): 27433 voters

Lower Limit (for DUN): 20277 voters

Upper Limit (for Parliament): 81110 voters

Lower Limit (for Parliament): 109736 voters

However, equalization of constituency sizes at the DUN level is critical to ensure equalization of the parent Parliamentary voter size.

In 2016 - 2018 redelineation exercise, Election Commission (EC) refuse to rectify existing malapportionment despite having the constitutional obligations to do so. Oversize (too many electors) are found in a mixture of urban and rural constituencies. For undersize constituencies, mostly are found in rural areas but some undersized constituencies were found in Majlis Bandaraya Kuala Terengganu (home to state capital).

Out of 32 state constituencies in 2020, 15 of them are malapportioned (having too many voters or too little voters). These 15 constituencies that surpass the deviation of +/-15% of State Electoral Quota (DUN) is a matter of concern. Our map below will illustrate the situation quite effectively.

MAP 1: MALAPPORTIONMENT SITUATION IN TERENGGANU (2020)

The above map shows constituencies that are light yellow are respecting the principles of One Person, One Vote, One Value. Constituencies that are dark blue or red are malapportioned.

Click on the polygons (in Map 1) and explore more data for each DUN.

With the exception of DUN Bandar (Parliamentary Constituency: Kuala Terengganu), all DUN has witnessed an increase in their DUN population with varying levels. DUN Bandar, which is an undersized urban constituency is the only DUN that is experiencing a depopulation. The oversized DUN Constituencies are experiencing a Compounded Annual Growth Rate (CAGR) of 1-2% from 2018 to 2020. The undersized constituencies are experiencing a slower CAGR growth rate of 0 - 1%. In short, malapportionment among DUN constituencies increases.

It is important to note that during a redelineation, EC would be seeking expert advice on population spread. Such advise emanates from Department of Statistics. Hence it is surprising that EC did not consider projected population growth of various parts of Terengganu.

MAP 2: COMPOUNDED ANNUAL GROWTH RATE OF ELECTORATE SIZE FOR CONSTITUENCIES

If you click on the colour coded polygons in the map, you will realize few things

• State constituencies in heart of Kuala Terengganu city are growing slowly with DUN Bandar depopulating. This worsens malapportionment.
• Rural undersize constituencies in central Terengganu (i.e. Telemung, Kuala Berang and Ajil), are growing much slowly than their counterparts on the coast. This worsens malapportionment as the gap among DUNs' electorate sizes grows bigger.

One of the requirements of 13th Schedule (the guiding principles of redelineation) is the constituency needs to be drawn with consideration of facilities that can serve as polling machines.

Schedule 2(b) states that " regard ought to be to the administrative facilities available within the constituencies for the establishment of the necessary registration and polling machines;"

Generally speaking, we tend to assume EC has taken into consideration for the redelineation purposes. In reality, EC has drawn the polling districts of each constituency without proper consideration of available polling facilities. As soon as redelineation concludes, EC is to subdivide the constituency into polling districts and assign polling centre to each polling district. Moreover, EC has the power to change the polling stations depending on the needs and such changes must be communicated via the Gazette.

Let's take the example of DUN N.03 Jertih (Parliamentary constituency of Besut). Not only it has unusual shape with a neck over Besut River, one of the polling districts (Seberang Jertih) has its polling station in the neighbouring DUN N.01 Kuala Besut (Parliamentary Seat of Besut). This raises a question whether EC has drawn polling district of Seberang Jertih with an internal polling station or not.

MAP 3: VOTER FLOW IN N.03 JERTIH (BLACK ARROW)

Another example is DUN N. 12 Bukit Tunggal (Parliamentary constituency of Kuala Nerus). One of its polling district is called Batu Enam. The polling station of Batu Enam is not found in Batu Enam nor anywhere in DUN Bukit Tunggal. It was the found that the polling station was in neighbouring polling district in Tok Jiring of N.09 Tepuh.

MAP 4: VOTER FLOW IN N.18 BUKIT PAYUNG (BLACK ARROW)

Within a DUN constituency, we can also see the allocation of polling stations to polling districts in an illogical manner. Referring to the example of one corner of N.18 Bukit Payung (Parliamentary constituency of Marang), EC allocated polling stations for Bukit Payung, Pekan Bukit Payung and Mak Kemas polling districts in a manner that results in criss crossing of voters and unnecessary traffic jam.

MAP 5: VOTER FLOW IN N.18 BUKIT PAYUNG

Referring to Map 5, we can see voters from Bukit Payung polling district (Black Arrows) have to enter Pekan Bukit Payung Polling District. Voters from Mak Kemas polling district (Red Arrows) enter Pekan Bukit Payung Polling District (crossing together voters of Bukit Payung). Voters of Pekan Bukit Payung (Blue Arrows) had to exit their own polling district and enter Mak Kemas polling district to cast their votes. As voters Pekan Bukit Payung polling district go out to vote, they will be crossing the paths of voters of Mak Kemas and Bukit Payung. It is no wonder that traffic jams occur during an election time.

While Terengganu DUN and parliamentary constituencies largely adhere to existing council boundaries, there are areas where improvements could be made. Pulau Lang Tengah should be allocated to the polling district of Pulau Redang. Pulau Lang Tengah and Pulau Redang belongs to the same Mukim. Currently Pulau Lang Tengah is parked to DUN N.06 Permaisuri while Pulau Redang is parked to DUN N.08 Batu Rakit.

Another example of an area of improvement would be DUN N.31 Cukai.

MAP 6: CURRENT POLLING DISTRICTS (COLOUR CODED BASED ON DUNS) FOR N.31 CUKAI AND N.32 AIR PUTIH

Both DUN N.31 Cukai and N.32 Air Putih are oversized DUN constituencies in the Parliamentary Constituency of Kemaman. The current allocation of polling districts for Cukai Town shows that the town is divided into two constituencies. In our suggestion, all polling districts of Mak Chili, Gong Pauh, Bukit Mentok, Gong Limau, Bukit Tinggi, Kampung Tuan, Kubang Kurus, Kampung Tengah and Jakar can make up one compact DUN for Cukai Town. Kuala Kemaman, Geliga, Fikiri, Geliga Besar and Paya Berenjut can be parked to DUN Air Putih. While it is not possible to replicate the possibility of having a city or town in one DUN, this option exists for Cukai.

1. Firstly, respect the principle of the ratio of parliamentary constituencies to DUN constituencies. For Terengganu, no change in number of DUN constituencies. If Parliamentary Constituency is added, there is a case for an increase in DUN size.
2. Secondly, calculate the number of constituencies required for council areas of Terengganu. Formula: Total voters (2020) of Council Area divided by Average DUN voter size of Terengganu (2020).
3. Thirdly, keep all proposed state constituencies within a district or a council area while having an electorate size that does not deviate greater than +/-15% of State (DUN) Electoral Quota.
4. Aggregate polling districts into new proposed DUN with the following considerations:
• Mukim Boundaries
• Planning Blocks
• Transportation Network Connectivity
• Geographical contiguity
• Other administration divisions.
1. Finally, identify the number of polling centres available (preferably schools first, followed by halls and finally other places used by EC in GE14). If a DUN has 10 polling districts, ideally it should have 10 polling centres. However, we have to admit this requirement is difficult to be met as polling districts drawn by EC seems to ignore the availability of facilities within them.

Criteria:

• 32 State Constituencies (No change)
• Constituencies are to have voter population size to be within +/-15% of State (DUN) Electoral Quota
• Respect Council/District* Boundaries where possible (primary rule for the DUN, but parliamentary constituencies are exempted

Council and District Boundaries cover the same area in Terengganu with the exception of Kuala Nerus district being a subset of Majlis Bandaraya Kuala Terengganu.

Referring to the second step, we have found these councils:

• Majlis Daerah Hulu Terengganu (55199 voters)
• Majlis Daerah Marang (75784 voters)
• Majlis Daerah Setiu (43549 voters)

do not have enough voters to form a single parliamentary constituency to cover one council area. If a parliamentary constituency is formed to cover only Majlis Daerah Marang (as an example), you have a parliamentary seat that is 79% of State Electoral Quota (Parliament) and this constituency would be undersized. We propose a parliamentary constituency to span over Setiu, Besut and Kuala Terengganu districts to attain equalization. Besut District has too many voters and we propose a DUN in Besut District to be parked with Setiu parliamentary constituency (hence, we are in agreement what EC has done before). Marang parliamentary seat shall span the entirety of Majlis Daerah Marang and a part of Majlis Perbandaran Kemaman.

Hence, we should practice some flexibility in respecting local council or district boundaries for the formation of a DUN or Parliament. Local Council and district boundaries are drawn without a consideration of electorate population size. We still strive to respect local council boundaries for Terengganu as much as possible so long the equalization is attained.

MAP 7: PROPOSED 32 STATE CONSTITUENCY (COLOUR CODED BASED ON EQUALIZATION LEVEL WITH WHITE BOUNDARIES), PROPOSED PARLIAMENTARY CONSTITUENCIES (WITH BLACK BOUNDARIES) AND MUKIM BOUNDARIES (DASHED BLACK LINES)

Click on Each Colour Coded Polygon to to find the coverage area of Proposed DUN with the location of the DUN in given Mukim or Township Boundaries.

It is possible to equalize all but two DUNs to be within +/-15% while respecting council boundaries. The two DUNs (hence in red or green) who couldn't meet the +/-15% threshold are:

• N.13 - covering southern part of Seberang Takir area (15.56%)
• N.14 - covering Manir area (15.75%)

These two DUNs exceeded the acceptable deviation by 1% and this deviation occurred due to preservation of local ties. Only one DUN had to cross council boundaries which is N.11 (covering Belara and parts of Kuala Telemung) to ensure equalization of the surrounding DUNs.

All 8 proposed parliamentary constituencies have an electorate size of +/-10% of State Electoral Quota (Parliament).

Using the list of schools (as primary option for polling stations) of Terengganu, 28 out 32 DUNs can be deemed to have sufficient facilities for polling. For example, N.31 Cukai has 11 polling districts and within the DUN, there are 12 schools that can be converted into polling stations. Having said, EC must work towards to ensure two facilities are ready for polling stations within a polling district. Following are the DUNs where there are insufficient schools for polling stations:

• N.03 - Covering Jerteh area (need to find additional two polling facilities)
• N.13 - Covering Southern Seberang Takir area (need to find additional two polling facilities)
• N.15 - Covering Cabang Tiga area (need to find additional six polling facilities)
• N.21 - Covering Bukit Payung & Alur Limbat area (need to find additional one polling facility)

Conclusion

It is possible to equalize all DUNs and Parliamentary constituencies simultaneously while respecting local ties. Hence, the fundamental concept of ratio of parliamentary constituencies to DUN constituencies must be respected.

For further enquiries , please email to info@tindakmalaysia.com