Malaysia’s Most Congested City: Challenges and Solutions in Penang

Penang, one of Malaysia’s most vibrant and economically dynamic states, is grappling with a pressing issue: traffic congestion. The capital, George Town, was ranked the most congested city in Malaysia in 2024 by the TomTom Traffic Index, with drivers spending an average of 27 minutes to travel just 10 kilometers—a speed of about 22 kilometers per hour. This chronic congestion is not only frustrating for commuters but also stifles the city’s productivity and quality of life. To address this, Malaysian Prime Minister Anwar Ibrahim officially launched the construction of Penang’s Mutiara LRT Line in January. This nearly 30-kilometer light rail transit (LRT) system, slated to open in December 2031, is a bold step toward transforming Penang’s transportation landscape. However, until the LRT becomes operational, the city must rely on interim solutions to ease its traffic woes.

A Car-Centric City in Crisis

Penang’s transportation challenges are deeply rooted in its car-centric culture. The city boasts a well-developed road network, but this has inadvertently encouraged a heavy reliance on private vehicles. As a result, the roads are overwhelmed, leading to gridlock during peak hours. The situation is exacerbated by the city’s geographic constraints. Penang Island, where George Town is located, is densely populated, with limited land available for expanding roads. Even if more roads were built, they would likely be quickly filled by new drivers, a phenomenon known as “induced demand.” This cycle of congestion and expansion is unsustainable, making it clear that Penang’s future lies in developing a robust public transportation system.

The Struggles of Penang’s Bus Network

Penang’s current public transportation system, which includes 47 bus routes operated by a fleet of about 350 buses, is woefully inadequate to meet the city’s needs. Traffic congestion often disrupts bus schedules, causing delays at stations and terminals. This unpredictability deters many commuters from relying on buses, further exacerbating reliance on private vehicles. In an effort to improve efficiency, Penang launched a six-month pilot program in November 2024 to test dedicated bus lanes in the inner city. While this initiative shows promise, it is only a short-term fix. The reality is that Penang’s bus network requires significant expansion and modernization to become a viable alternative to driving.

The Promise of the Mutiara LRT Line

The Mutiara LRT Line represents a major investment in Penang’s transportation infrastructure, with a price tag of 10.5 billion ringgit (US$2.4 billion). Once completed, the LRT will provide a fast and reliable transit option for residents, connecting key areas across the island. However, the system’s success will depend on its integration with other modes of transportation, particularly buses. In cities like Singapore, where 44.5% of public transport journeys involve a combination of buses and trains, the importance of a complementary bus network cannot be overstated. For Penang, which has a lower population density and a smaller rail network, buses will be even more critical in providing the “first-and-last mile” connections that allow commuters to complete their journeys entirely on public transport.

Bridging the Gap with Enhanced Bus Services

Until the LRT line becomes operational, the most effective strategy to reduce congestion in Penang is to persuade more commuters to switch from driving to using buses, especially during peak hours. By ramping up bus services now, the city can not only alleviate current traffic pressures but also build a foundation of transit users who will seamlessly transition to the LRT when it opens. This approach is particularly important given Penang’s medium-density urban layout, where buses can serve areas that the LRT may not reach directly. A well-planned and efficient bus network will ensure that the LRT’s expensive infrastructure is used to its full potential, making it a worthwhile investment for the city’s future.

A Vision for a More Sustainable and Connected Penang

The launch of the Mutiara LRT Line is a significant milestone in Penang’s journey toward becoming a more sustainable and livable city. However, the success of this project depends on more than just building new infrastructure—it requires a holistic approach to transportation planning. By improving bus services, trialing innovative solutions like dedicated bus lanes, and fostering a cultural shift away from car dependency, Penang can create a transit system that truly serves its residents. The lessons learned from this effort will not only benefit Penang but could also serve as a model for addressing congestion in other Malaysian cities. With careful planning and collaboration, Penang can overcome its traffic challenges and emerge as a beacon of modern, efficient urban mobility in Southeast Asia.