Organisation Structure and Functions

Chapter 2
ORGANI SATI ON STRUCTURE AND FUNCTIONS

An analysis of the structure and functions of an organisation is important towards
identifying the components for the development of an integrated computer-based system
to achieve the business objectives of the enterprise. In particular, it is important to obtain
an overall perspective since many tasks and functions are interrelated but for operational
purposes they are compartmentalised by job specialisations and assignment of tasks to
functional units such as departments or sections.
It is important to bear in mind that an organisation is dynamic and is constantly evolving
as it grows, matures or is subject to external influences and stimuli. As such, the
structure of an organisation is not the overriding concern in this chapter but the functions
and tasks which have to be translated or transfer to the computer-based system which
will receive our attention.
STATUTORY POWERS OF THE LOCAL PLANNING AUTHORITY
The Municipal Council of Penang Island (MPPP) is a local government created under the
Local Government (LG) Act 1976. MPPP is the successor-in-title to the Municipality of
Georgetown, one of the two pioneer local governments created in 1857 by the colonial
administration of Malaya. As a local government, the LG Act 1976 entrusts it with
general responsibilities associated with public health, safety and the general welfare of
the local community. In carrying out these responsibilities it is empowered, amongst
others, to regulate the carrying out of activities related to the erection of buildings.
In addition, the Town and Country Planning (TCP) Act 1976 provides the local
government with statutory powers to define permitted uses of each parcel of land and
building as well as powers to compel compliance by any person carrying out
development activities. The process by which compliance with local government policies
on land use[1] is enforced is referred to as planning control.
The TCP Act 1976 defines that the local government of an area shall be the local
planning authority for its area of jurisdiction (s. 5(1)). As the local planning authority, its
function is primarily to regulate, control, and plan the development and use of all lands
and buildings within its area (s. 6(1))[2].
In this report, we are concerned with the powers to regulate and control the use of land
and buildings. Provisions for planning control was first introduced in the Federated
States of Malaya in 1923[3] but it was removed in 1927 and reintroduced only in 1976.
Specifically, Part IV of the TCP Act 1976 establishes :
a. the need to obtain prior permission before any development is undertaken;
b. the need to conform or comply with the permission granted;
c. the manner for applying for permission and treatment of applications;
d. the rights of applicants with regard applications for planning permission.
In MPPP, these powers were invoked in 1985 and forms the basis for all activities related
to planning control in Penang Island.
Page 1 of 10 An analysis of the structure and functions of an organisation is important towards iden...
1/7/2014 http://www.hbp.usm.my/eplan/MPPPUserneed/Chp2.htm
DEPARTMENTS INVOLVED WITH DEVELOPMENT CONTROL
The power to control development rests with the local planning authority which by
definition means the local government[4]. The local government is a legal entity
(corporate body) comprising the President (as the chief executive) and not more than 24
Councillors appointed by the State Authority. It is this body which holds the powers and
obligations in development control[5] but certain powers maybe delegated to its officers
or committees to facilitate the smooth running of the organisation[6].
The operations of the Council is organised according to departments each with specific
responsibilities and functions. Their major role is to carry out the work necessary to fulfill
the responsibilities and obligations of the Council. These departments are merely the
administrative and implementation machinery but very often this is not appreciated by
outside parties. For example, the planning department is often mistaken as or taken for
granted to be the local planning authority leading to confusion amongst members of the
public and even developers and consultants when the Council makes decisions which do
not concur with the professional or technical advice of its officers.
Figure 2-1 shows three departments (Town Planning, Building and Engineering) with
major responsibilities for development control. The names of the department themselves
suggest their areas of responsibility and functions. They are not only involved in
development control activities but perform tasks related to other functions of the local
government. For example, the Building Department also design and implement projects
for the council such as beautification and landscaping projects and public markets while
the Engineering Department also maintain roads and manage traffic.
There is a considerable amount of cross-traffic between the three departments for the
activities related to development control. For instance, applications for planning
permission are routinely referred to the Building and Engineering Departments, each
making comments or specifying requirements related to their area of jurisdiction. During
the first round, multiple copies of the plans (application) are simultaneously sent to each
department for comments. Subsequently, as the memos, minutes and correspondence
accummulate they are organised and compiled into a single file. The entire file then
physically travels as it makes its rounds from one department to another to obtain the
necessary clearance. This paper-based system obviously has serious drawbacks (see
discussion in chapter 3). Ideally, the computer-based system will allow simultaneous
access by all the relevant personnel from their respective departments. This aspect will
have to be studied in detail when the Council-wide system is being developed at a later
stage. For the Pilot Project, emphasis is placed on the process by which the tasks for
handling applications for planning permission is to be implemented at the Planning
Department.
Figure 2-1
DEPARTMENTS WITH PRIMARY RESPONSIBILITIES
FOR DEVELOPMENT CONTROL AT MPPP
In addition to the three departments mentioned above, the Licensing Department has
close links with these departments mainly to ensure that licenses issued for particular
premises comply with planning permission or building plans previously approved. Under
the TCP Act 1976 change of use of building is classified as development and therefore
requires planning permission. In processing applications for licenses to trades or
conduct businesses, the Licensing Department forwards the applications to the Town
Planning and Development Department to determine that it is in compliance with
permissions granted.
The Health Department is also consulted during the process of development control,
particularly with regards spaces for hawking.
The development approval process and treatment of applications for planning permission
is discussed in detail in chapter 3.
DEPARTMENT OF TOWN PLANNING AND DEVELOPMENT
Functions
As a professional and technical department, it is charged with carrying out the duties of
the local planning authority with regards proper development of land. The department
has listed its functions as :
(a) To regulate, control and plan development, use of land and buildings.
(b) To plan and coordinate development projects by MPPP.
(c) To carry out research studies to assist in planning and development control.
Tasks
In performing the above functions, it has further classified various tasks which it must
undertake :
A. Planning Related
i. Prepare structure and local plans
ii. Formulate policies and guidelines for development control, land use, and
conservation.
iii. Undertake research (data collection and analysis).
iv. Carry out project planning and coordination for MPPP.
B. Development Control
i. To processing applications for planning permission, subdivision of land and
change of use of land and buildings.
ii. Assist in the processing of building plans and licenses (e.g. business
licenses).
iii. Registration and coordination of applications for planning permission.
C. Advisory Services
i. Advice public and government agencies on matters related to development
planning and development control.
Organisation Structure
Based on the above responsibilities, the department is structured into three technical
services section with a supporting administrative unit (see Figure 2-2). The organisation
is constantly evolving and as such, the departments organisational structure as shown in
the chart serves merely to highlight certain issues related to functional units and job
specialisation. It must also be remembered that the activities carried out by a particular
section or unit may be related to or have implications for others. The task of the Planning
and Development Section is to undertake forward planning and policy formulation. In
carrying out this task, it relies on data or information generated by the Development
Control Section such as development pressures and trends in development. Conversely,
the Development Control Section utilises the plans and policies formulated by the
Planning and Development Section to guide decisions on approval of applications for
planning permission.
The department is headed by a Director who is a professional town planner. He is
currently assisted by three town planners with professional qualifications. Apart from
technical and professional duties, the town planners (officially known as Town Planning
Officers) also perform some administrative duties.
Figure 2-2
ORGANISATION CHART OF
TOWN PLANNING AND DEVELOPMENT DEPARTMENT, MPPP
Functionally, each of the three sections have quite clear cut responsibilities and duties.
Personnel are assigned to each of the sections or units with specific job assignments and
designations. However, in practice the personnel often have to be temporarily assigned
to urgent duties or jobs because of the lack of manpower. When some of the technical
staff, especially the Assistant Town Planners, were asked the question What tasks do
you perform?, the response was Everything!. In other words, they are expected to
carry out any work order issued by their superior officers. While most staff would
welcome the chance to have break from the monotony of doing the same tasks over and
over again, the consequence is that other tasks would have to be temporarily put aside.
In any organisation, it is also inevitable that such ad hoc assignments may lead to
discontent because the staff may perceive it as additional burden beyond their job
specifications which may not be given sufficient credits in annual performance
evaluations. It is an issue of equitable workload distribution. A computer-based system
which is properly designed could help to resolve some of the issues related to
productivity and measures of performance. The issue of specialisation is discussed in
greater detail later in this chapter. For the moment, suffice it to say that we must avoid
trying to seek a direct transfer of current job descriptions and assignments into the
computerised environment.
Administrative staff are not involved in the work of the technical sections. On the other
hand, the Assistant Town Planner and Technicians carry out administrative tasks
asssociated with development control such as file management and correspondence
between applicants, agents and other departments. Previously, the town planners were
not involved in the processing of applications for planning permission. They were given
full responsibility to handle building plans, that is, to process the plans without having to
refer the plans to the Director of Town Planning (unless it involves policy
issues). Currently, all the town planners are involved in processing applications for
planning permission ostensibly to keep them informed or up-to-date with development
approvals. This has not only resulted in re-introducing an additional layer in the red-
tape but has distracted the town planner who would otherwise be able to spend more
time on forward planning or the pursuit of office automation (computerisation). It must be
noted that this situation arose out of the failure of the paper-based system to disseminate
information in a timely manner. Ideally, with the computer-based system, information will
be available on-line in real-time mode. This will allow greater flexibility for the department
to structure and streamline job functions.
Turnover amongst the town planners is very high (four planners have resigned in recent
months) primarily because of lucrative offers from the private sector on the one hand and
the limited prospects for career advancement in local government service. At the
supporting technical staff level, the staff turnover is not as critical but the department
faces difficulties in retaining staff hired on contract. In one case, the staff being assigned
to and having undergone on-the-job training with the USM Team resigned for a
permanent position with a federal agency. In another case, the town planner put in
charge of the departments GIS project (prior to the appointment of the USM Team) left
without any substantive development or progress.
The permanent staff are mostly preoccupied with the bread and butter duties of the
department such as processing of applications for permission. Most of the staff have
indicated a willingness and enthusiasm to learn new technology. However, many have
also expressed scepticisms on the possibility of success due to numerous previous
efforts (studies) with no tangible results to improve productivity in the office. Another
problem for the staff is that many are still ignorant as far as office automation and use of
IT in the office is concerned. Some staff have actually expressed fears that they may
inadvertently destroy expensive equipment due to their ignorance. It is important
therefore that IT be introduced incrementally and progressively assimilated into the work
culture to make the staff comfortable with IT.
Responsibilities of Sections
Each of the sections and units are assigned specific activities as listed below :
I. Development Control Section
a. To process applications for planning permission, subdivision and
amalgamation of land.
b. To comment on applications for land titles, category of land use (under NLC),
and change of use of building and land.
c. To comment on application for trade, business and other licenses.
d. To answer enquiries on development control (planning enquiry).
e. To record and monitor the processing of applications for planning permission,
building plans, subdivision and amalgamation of land.
II. Planning and Development Section
a. To collect and analyse data and statistics related development control and
preparation of development plans.
b. To formulate policies, guidelines and manuals for development control and
preparation of development plans.
c. To disseminate data and information to staff, government agencies and the
public on matters related development control and land use planning.
d. To prepare and monitor the implementation of development plans.
e. To prepare and coordinate action area plans and MPPP projects.
f. To prepare urban conservation plans.
III. Plan Registry Unit
a. To carry out the registration and monitoring of applications for planning
permission, building plans, building extensions and renovations, and
landscaping plans.
b. To undertake the first round referral of applications to various departments for
comments.
c. To serve as the secretariat for weekly CLAP meetings and technical
committee meetings.
IV. Administrative Unit
a. To undertake file management, correspondence, typing, secretarial services,
clerical work and administration.
b. To coordinate financial services such as call for quotations, purchase orders,
billing, preparation of annual department budget, and control of expenditure.
c. To take charge of the maintenance of office equipment and office security.
d. To handle personnel matters and staff discipline.
SPECIALISATION AND OBSOLESCENCE
Departments are created to undertake specific or specialised functions usually based on
the amount of workload, urgency, staff skills and visibility associated with the services
provided. It is important to note that an examination of the organisational structure is
meaningful to extent that it helps to identify the tasks required to be performed by the
computer-based system. Each local government structures itself differently. For
example, building and planning control in Kuala Lumpur and J ohor Bahru are placed
under the charge of the Director of Planning while these two functions are the
responsibility of two different departments in MPPP. In addition, departments are further
organised in units or sections according to job functions or major activities.
While specialisation has its benefits and advantages, there are also many drawbacks. In
designing the computer-based system it is important that these are recognised.
Most organisations are structured according to major areas of responsibilities or job
functions. The underlining rationale for well-defined job descriptions (or specialisations)
are several:
a. The staff knows what they are expected to do (i.e. they are expected to recognise
and perform specified duties with little or no instruction). This ensures that a job
gets done.
b. The staff cannot deny responsibility if the work is not executed.
c. Conversely, the staff cannot be accused of not doing something which is not
within their job description.
d. Specialisation facilitates the acquisition of a high level of skill and knowledge in a
certain function which in turn promises higher accuracy, efficiency and
productivity. This is especially so in non-computerised environment where
personal knowledge, experience, memory and repeated execution of the same
task creates a walking databank.
e. Specialisation facilitates a more equitable allocation of workload.
f. Specialisation is necessary for certain jobs which requires extensive education
and training prior to appointment with emphasis on the necessary paper
qualification. This is of course a modern alternative to on-the-job training which
used to characterise the means by which a person learns the trade. In the early
history of the town planning service, planners worked their way up from
technicians. The department even had a division devoted to creating the
curriculum, examinations and conducting of in-service training.
However, in the age of IT many of the rationale for rigid job specialisation as well as the
job itself has become blurred or even obsolete. One classic example is that of the
typist. A combination of factors including overall increase in wages, the search for a
better quality of life and job satisfaction as well as the vision of software developers have
combined to make the typist a dying breed in certain countries. Notably, wordprocessing,
desktop publishing and office productivity tools are targetted at the source or document-
generator (i.e. writer or author). This report is in fact prepared without the assistance of
the professional typist with the authors preparing the text, formatting and graphics using
various software. But more than merely a high-tech version of the typewriter,
wordprocessors promote the process of creative thinking as the ideas flow during report-
writing.
It is recognised that most people who are not trained in typing skills are intimidated by the
QWERTY keyboard and find it slow. On the other hand, specialisation has also bred a
mentality that some jobs are to be undertaken only by the properly designated person. In
other words, typing must be done by the typist.
But there are several indicators that the professional typists will eventually be obsolete in
Malaysia. First, there is the drive by the Prime Minister Datuk Seri Dr. Mathathir
Mohamad to create a paperless (i.e electronic) government starting with the Prime
Ministers Department when it moves to Putrajaya in 1998. The new Sungei Buloh
Hospital will also reportedly be entirely paperless. Amongst others, civil servants (and
doctors, nurses, etc) will have to communicate through email and this will require that
they develop their keyboard skills. In the paperless office, it would be ludicrous if the
government servant drafts a letter or reply on paper and pass it to a typist (or personal
assistant) to key-in. A change in working environment will force a corresponding change
in work culture and norms. The key to successful use of IT is in matching job functions to
the IT tools with IT as the only accepted means of performing the tasks.
Government departments are already facing difficulties in filling vacant typist posts even
after numerous advertisements[7]. The available typists are unable to handle the
workload and this in turn forced the government servants to prepare working papers or
briefs using their PCs with the final formatting done by the typists. Voice recognition
technology may in future relief the burden of typing but future generation will themselves
become familiar the the keyboard and pointing devices (mouse, touch screens) even
from a very young age as they interact with educational software and multimedia.
On the flip-side, the embrace of technology will redefine job description. At some
departments which have automated certain labor intensive functions, the typist have
become under-utilised and must be reassigned to other duties. The typist (as well as
many low paying jobs) is in fact a dying breed in countries where labour is expensive.
Typically, an office assistant will carry out typing, clerical, and office administration duties
all rolled into one.
Apart from the above issues, the integration of IT must recognise that the paper-based
system cannot be directly transferred wholesale into a paperless environment. In
particular, the question of redundancy is most prominent. For instance, in many pre-IT
organisations, special units track the movement of files or record data in several formats
in anticipation of various uses or request for statistics. With proper systems design,
these specialised units can be considerably reduced in size and function or even
abolished because such functions are integrated in the system. For instance, the job of
tracking the movement of plans will become redundant (but not obsolete) if there is no
physical movement of files and also because the system automatically tracks the
movement of the file within the system. Similarly, statistics will be captured as part of
the process of completing a task rather than as a separate exercise.
Another job description which will be obsolete is that of colouring. Currently,
technicians have to spend days and weeks using small brushes paint zoning and other
maps using the very difficult medium of planning (Ecoline) colours. Colour plotters
together with mapping software or GIS will eventually take over these tasks more
efficiently.
The above discussion serves to highlight three important observations and reminders to
the integration of IT for office operations. First, technological advances will make certain
jobs obsolete. Secondly, new skills will have to be acquired to take advantage of the
technology. And finally, a paper-based system must not be directly transferred into the IT
environment without a proper understanding of the limitations imposed by the paper-
based system.
[1] As contained in structure and local plans and other policy documents.
[2] Its other statutory duty is to undertake research and publication on matters
related to planning. It must also undertake any other function specified by the
State Authority or State Planning Committee.
[3] The instrument for planning control was submission and approval of layout
plans provided for under the Town Planning Enactment 1923.
[4] They could be a city council, municipal council or district council as the case
maybe.
[5] The term development control is often used inter-changeably with planning
control which would include control over the erection of structures which is provided
for under the Uniform Building By-Laws formulated under the Local Government
Act 1976. Planning control is used in the context of the provisions of the TCP Act
1976.
[6] For example, simple standard plans which comply with Council policies could be
approved by officers immediately without having to wait for the Council to be
convened.
[7] Apparently, support staff (including typists) have found it more financially attractive to work as production
workers in the factories.
Page 10 of 10 An analysis of the structure and functions of an organisation is important towards id...

Organisation Structure and Functions

Uploaded by

Document Information

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Organisation Structure and Functions

Uploaded by

Copyright:

Available Formats

Chapter 2

ORGANI SATI ON STRUCTURE AND FUNCTIONS

You might also like