A09.04 Data Centre Low Frequency Noise in Planning Approval by Local Councils

Key Takeaways

• Planning approval represents the earliest opportunity to consider potential low frequency noise impacts before major design decisions become fixed.
• Malaysian planning legislation provides local councils with broad powers to regulate development compatibility and environmental considerations.
• Although low frequency noise is becoming an increasingly recognised environmental issue, it is not explicitly addressed in most planning documents.
• Understanding how existing planning powers may apply to low frequency noise is important for developers, regulators and communities alike.

Introduction

As data centre development accelerates across Malaysia (→E01 What Is a Data Centre), discussions surrounding their environmental impact have increasingly focused on electricity consumption, water demand, land use and infrastructure requirements.

A less visible but increasingly discussed issue is low frequency noise.

Unlike conventional environmental noise, which is often assessed through overall sound levels such as dBA, low frequency noise involves sound energy concentrated in lower frequency bands that may behave differently during propagation and may be perceived differently by people (→A09.03 Low Frequency Noise Effects-What Research Shows).

Large data centres contain multiple continuous mechanical systems, including:

• cooling towers;
• chillers;
• pumps;
• ventilation equipment;
• transformers; and
• electrical infrastructure.

Many of these systems operate continuously because modern data centres are designed for uninterrupted operation (→E03.01 Understanding Data Centre Cooling Systems).

As explained in earlier articles in this MDCO series (→A09 Understanding Low-Frequency Noise from Data Centres), scientific research has increasingly recognised that low frequency noise requires careful consideration because:

• conventional A-weighted measurements may not fully represent low frequency acoustic energy;
• low frequency sound can travel over significant distances under favourable conditions;
• prolonged exposure is most consistently associated in research with annoyance and sleep disturbance;
• individual responses vary significantly depending on environmental and personal factors.

However, understanding the acoustic science is only one part of the question.

The next question is:

At what stage should low frequency noise be considered within the development approval process?

This leads to an important governance issue.

If potential low frequency noise impacts can be influenced by decisions such as site selection, equipment layout and building design, then the earliest and most effective opportunity for consideration may be during planning approval.

The purpose of this article is therefore not to determine whether data centres should be restricted because of low frequency noise.

Rather, it examines a more fundamental question:

Does Malaysia’s existing planning framework already provide local councils with the authority and tools to consider low frequency noise during development approval?

Answering this question requires examining the relationship between planning legislation, national and state policies, local plans and actual approval practices.

Why Low Frequency Noise Is Receiving Greater Attention

Low frequency noise is not a new phenomenon.

It has been studied for decades in relation to many forms of infrastructure, including:

• industrial facilities;
• power generation;
• ventilation systems;
• refrigeration equipment;
• transportation systems;
• wind turbines; and
• large commercial buildings.

However, several developments have increased attention on this issue.

Advances in Scientific Understanding

Earlier environmental noise assessments were primarily developed around the understanding of audible sound and potential hearing damage.

As scientific research has progressed, researchers have increasingly examined how environmental noise affects people beyond simple audibility.

The strongest and most consistent evidence currently relates to:

• annoyance;
• sleep disturbance; and
• reduced environmental quality.

At the same time, emerging neuroscience research is investigating whether very low frequency sound may interact with the human auditory and nervous systems in ways more complex than previously understood.

These emerging findings remain an active area of research and do not replace established acoustic knowledge.

However, they reinforce a broader principle:

The relationship between measured sound levels and human experience is not always straightforward.

Relevance to Data Centres

Data centres have become an important focus because they combine several continuous mechanical systems within a single facility.

A large water-cooled data centre may include:

• multiple cooling towers operating simultaneously;
• large numbers of pumps;
• chillers and compressors;
• high-voltage transformers;
• mechanical ventilation systems.

Each individual source may appear modest when considered separately.

However, when many systems operate continuously together, they can create a persistent low frequency acoustic environment.

Unlike many industrial facilities that operate intermittently, hyperscale data centres are generally designed to operate:

• 24 hours per day;
• 7 days per week;
• throughout the year;
• for operational lifetimes measured in decades.

This continuous operating characteristic makes long-term environmental compatibility an important planning consideration.

International Experience

Around the world, low frequency noise has become a subject of increasing community attention.

In several countries, disputes involving industrial facilities, energy infrastructure and wind turbines have raised questions about whether conventional noise assessment methods fully capture community experience (→A09.01 Why Low-Frequency Noise Becomes a Community Conflict).

Some cases have involved complaints or legal disputes where:

• measured dBA levels complied with existing limits;
• residents continued reporting persistent low frequency sound;
• additional frequency-based investigations were conducted.

These experiences do not demonstrate that all low frequency noise creates unacceptable impacts.

Rather, they highlight an important governance lesson:

When scientific understanding evolves, regulatory frameworks must continually examine whether existing assessment approaches remain appropriate.

For rapidly expanding data centre markets such as Malaysia, understanding these issues at the planning stage provides an opportunity to address potential concerns before facilities become operational.

Why Planning Approval Is the Critical Stage

A data centre development follows a sequence of regulatory and technical stages.

In simplified form:

Planning Approval
↓
Building Plan Approval
↓
Construction
↓
Certificate of Completion and Compliance (CCC)
↓
Business Operation

Each stage has different responsibilities and opportunities for intervention.

However, planning approval is unique because many fundamental decisions are still flexible.

During planning, decisions may include:

• site location;
• land-use compatibility;
• separation distance from neighbouring properties;
• building orientation;
• location of cooling equipment;
• arrangement of mechanical systems;
• potential mitigation measures.

Once construction is completed and the facility begins operation, changing these factors becomes significantly more difficult and costly.

For example, relocating cooling towers after operation begins may require:

• major engineering modification;
• operational disruption;
• additional capital expenditure;
• redesign of mechanical systems.

Therefore, from a governance perspective, planning approval represents the point where potential environmental impacts can often be addressed most effectively.

Why Local Councils Are Central to This Discussion

In Malaysia, local councils play a key role in controlling development within their respective jurisdictions (→E06 How Data Centres Are Approved in Malaysia).

As Local Planning Authorities under the town and country planning framework, local councils are responsible for considering whether proposed developments are suitable within their surrounding environment.

Their responsibilities extend beyond simply determining whether a building can physically be constructed.

Planning decisions involve broader questions such as:

• compatibility with surrounding land uses;
• protection of public interest;
• orderly development;
• environmental quality;
• community considerations.

This raises an important question.

If low frequency noise is increasingly recognised as an environmental consideration associated with certain types of development, does the existing planning framework already allow local councils to consider it?

The answer requires examining the legal foundation of planning control, beginning with the Town and Country Planning Act 1976 (Act 172).

Scope of This Article

This article focuses specifically on the role of local councils during the planning approval stage.

It examines:

• the legal powers provided under Act 172;
• national and state planning policies;
• local planning documents;
• data centre planning guidelines;
• the potential use of planning conditions.

It does not examine in detail:

• building plan approval;
• the responsibilities of the Principal Submitting Person (PSP);
• construction inspection;
• Certificate of Completion and Compliance (CCC);
• operational noise monitoring;
• enforcement after commencement of operation.

These topics will be examined separately in later MDCO articles.

The objective is not to identify shortcomings or assign responsibility to any particular stakeholder.

Instead, it is to understand how existing planning mechanisms may support better-informed decisions as Malaysia continues to develop large-scale digital infrastructure.

MDCO Insight: As scientific understanding of low frequency noise continues to evolve, examining how existing planning powers apply to this issue provides a foundation for more informed and balanced data centre development.

How Data Centre Planning Approval Works in Malaysia

Before examining whether local councils can consider low frequency noise during development approval, it is important to first understand how the Malaysian planning system operates.

A data centre is not approved through a single decision by one organisation.

Instead, its development involves multiple layers of planning policies, statutory approvals, technical assessments and stakeholder reviews.

The planning approval process is designed to ensure that a proposed development is compatible with:

• national development objectives;
• state planning strategies;
• local land use policies;
• surrounding communities; and
• technical requirements imposed by relevant authorities.

Understanding this framework is essential because the question of low frequency noise does not exist in isolation.

It sits within a broader planning process where different authorities consider different aspects of a proposed development.

The Malaysian Development Planning System

In Malaysia, development control is generally guided by a hierarchy of planning documents and approval mechanisms established under the town and country planning framework.

For a major development such as a hyperscale data centre, the process typically involves the interaction of several stakeholders.

Federal Government

At the federal level, the government establishes national policies and strategic directions relating to:

• economic development;
• digital infrastructure;
• energy transition;
• environmental sustainability;
• urban development.

Federal agencies also provide national planning guidance through organisations such as PLANMalaysia, which prepares spatial planning policies and guidelines.

These policies provide the broader direction within which state and local authorities make planning decisions.

PLANMalaysia

PLANMalaysia, formerly known as the Federal Town and Country Planning Department, plays an important role in preparing national and technical planning frameworks.

Its responsibilities include:

• preparing national spatial planning policies;
• developing planning guidelines;
• supporting state and local planning authorities;
• promoting coordinated land use planning.

For emerging developments such as data centres, PLANMalaysia’s role is particularly relevant because these facilities involve multiple planning considerations, including:

• large electricity demand;
• infrastructure requirements;
• land use compatibility;
• environmental considerations.

Where new environmental considerations emerge, such as increasing attention on low frequency noise, planning guidelines provide an important mechanism for translating scientific understanding into practical planning considerations.

State Government

State governments establish state-level planning directions through documents such as:

• State Structure Plans;
• sectoral policies;
• investment strategies;
• infrastructure planning frameworks.

States determine broader priorities such as:

• industrial development areas;
• economic corridors;
• strategic investment locations;
• infrastructure expansion.

For data centres, state policies may influence where such developments are encouraged and how they integrate with broader economic and spatial planning objectives.

Local Authorities

At the local level, local councils are responsible for implementing planning controls within their jurisdictions.

Examples include:

• city councils – eg. Majlis Bandaraya Iskandar Puteri (MBIP);
• municipal councils;
• district councils.

Local authorities are generally the organisations that receive and process development applications through the planning approval system.

Their responsibilities include considering whether a proposed development is appropriate for its intended location.

One Stop Centre (OSC) Committee

A major development application is normally coordinated through the One Stop Centre (OSC) mechanism.

The OSC provides a coordinated platform where applications are reviewed by relevant departments and technical agencies.

The purpose is to:

• streamline approval procedures;
• coordinate technical comments;
• avoid fragmented decision-making.

For complex developments such as data centres, the OSC process allows input from multiple agencies, including:

• planning departments;
• engineering departments;
• environmental agencies;
• utility providers;
• fire and safety authorities;
• other relevant technical bodies.

Technical Agencies

Depending on the nature of the project, technical agencies may provide comments on matters such as:

• electricity supply;
• water infrastructure;
• drainage;
• traffic impact;
• environmental considerations;
• fire safety.

For data centres, technical review may involve agencies responsible for:

• power infrastructure;
• water supply;
• telecommunications;
• environmental management.

The involvement of technical agencies demonstrates an important principle:

A development approval decision is not based solely on whether a building can physically be constructed.

It also considers whether the surrounding systems and environment can support the development.

Developer and Consultants

The developer initiates the proposal and is responsible for providing the information required for assessment.

Professional consultants prepare the necessary submissions, which may include:

• planning documents;
• engineering reports;
• environmental assessments;
• technical studies.

Depending on the project, consultants may include:

• town planners;
• civil and structural engineers;
• electrical engineers;
• mechanical engineers;
• environmental consultants;
• acoustic consultants.

For issues such as low frequency noise, the availability and quality of technical information become important factors influencing whether the issue can be properly considered during approval.

The Role of Local Councils in Planning Approval

Within this framework, local councils occupy a central position.

Under Malaysia’s town and country planning system, local councils generally act as Local Planning Authorities (LPAs).

Their role is not limited to administrative processing.

They are responsible for exercising development control within their jurisdiction.

This includes:

• evaluating development proposals;
• considering planning implications;
• determining whether permission should be granted;
• imposing appropriate planning conditions.

The legal foundation for these powers is primarily provided through the Town and Country Planning Act 1976 (Act 172).

Act 172 establishes the framework through which planning authorities:

• prepare planning policies;
• control development;
• evaluate planning applications;
• regulate land use.

Importantly, planning control under Act 172 is broader than simply approving building structures.

It involves consideration of whether development is suitable within its wider physical and social environment.

This raises the central question of this article:

If low frequency noise represents a potential environmental consideration associated with certain developments, does the existing role of the Local Planning Authority provide sufficient authority to consider it?

Answering this requires examining not only the wording of Act 172, but also how national policies, state plans and local planning documents translate those powers into practical decision-making.

The Regulatory Hierarchy

The Malaysian planning system operates through a hierarchy where each level provides increasing detail and application.

A simplified structure can be represented as follows:

Federal Level – National Physical Plan
↓
State Level – State Structure Plan
↓
Local Level – Local Plan
↓
Project Level – Planning Permission
↓
Conditions of Approval

Each layer influences how a proposed data centre is assessed.

Federal Level — National Physical Plan

The National Physical Plan establishes broad spatial planning directions for Malaysia.

It addresses issues such as:

• national growth patterns;
• infrastructure development;
• environmental sustainability;
• strategic land use.

While it generally does not regulate individual projects, it provides the policy foundation that influences lower-level planning documents.

State Level — State Structure Plan

The State Structure Plan translates national planning directions into state-specific strategies.

It considers:

• economic development;
• urban expansion;
• industrial areas;
• infrastracture requirements.

For states actively promoting data centre investment, such as Johor, state planning policies influence where and how these developments are encouraged.

Local Level — Local Plan

The Local Plan provides more detailed guidance for development within a local authority area.

It typically addresses:

• land zoning;
• development intensity;
• surrounding land uses;
• planning objectives.

For a data centre proposal, the Local Plan becomes particularly important because it determines whether the proposed location is compatible with existing planning intentions.

Project Level — Planning Permission and Conditions of Approval

At the project level, the Local Planning Authority evaluates the specific proposal.

This is where practical considerations may arise, including:

• site layout;
• surrounding receptors;
• mitigation measures;
• development conditions.

Planning approval conditions are particularly important because they provide a mechanism through which authorities can require specific measures before allowing development to proceed.

For example, conditions may address:

• drainage;
• landscaping;
• traffic management;
• environmental protection.

The question explored throughout this article is whether similar mechanisms can be applied to low frequency noise considerations where appropriate.

The Question Behind This Series

The purpose of this MDCO analysis is not to assume that existing planning controls are inadequate.

Rather, it is to examine whether the current framework already provides useful tools that can support responsible data centre development.

The analysis will therefore examine five key questions.

1. Which Legislation Provides Authority to Consider Low Frequency Noise?

The first question is legal.

Does Malaysian planning legislation provide local councils with sufficient authority to consider acoustic impacts, including low frequency noise, during development approval?

This requires examining:

• Act 172;
• planning regulations;
• approval powers;
• conditions of development permission.

2. Is Low Frequency Noise Currently Considered During Planning Approval?

The existence of legal authority does not necessarily mean that it is actively applied.

The second question is practical:

Do local councils currently consider low frequency noise when reviewing data centre applications?

If not:

• is it because existing guidance does not require it?
• is it because conventional noise assessments are considered sufficient?
• or is the issue still emerging?

3. What Assessment Methods Are Used?

Low frequency noise cannot always be fully represented by conventional overall noise indicators.

Therefore, another important question is:

What information is currently reviewed during planning approval?

Examples include:

• dBA measurements;
• octave-band analysis;
• acoustic modelling;
• equipment sound power data;
• operational noise predictions.

4. Are Existing Powers Sufficient?

Even if planning legislation provides broad authority, practical implementation depends on whether councils have:

• appropriate guidelines;
• technical expertise;
• assessment criteria;
• consistent procedures.

The question is therefore not simply whether powers exist, but whether those powers can be effectively applied.

5. Is Further Guidance Required?

Finally, as data centres continue to increase in scale, an important policy question emerges:

Would additional guidance on low frequency noise improve planning certainty for:

• local councils;
• developers;
• consultants;
• communities?

A clear framework may benefit all stakeholders by allowing potential issues to be addressed earlier, rather than after facilities become operational.

MDCO Insight: Understanding the planning hierarchy is essential because low frequency noise can only be effectively considered when scientific knowledge is connected with the right decision-making stage.

Act 172: The Legal Foundation of Planning Control

Introduction to Act 172

The Town and Country Planning Act 1976 (Act 172) is the principal legislation governing town and country planning in Peninsular Malaysia.

The Act establishes the legal framework through which planning authorities:

• prepare planning policies;
• regulate development;
• control land use;
• assess development proposals;
• impose conditions on approved developments.

For data centre developments, Act 172 is particularly important because many potential environmental considerations arise before construction begins.

Issues such as:

• site suitability;
• surrounding land use;
• proximity to residential areas;
• infrastructure requirements;
• environmental compatibility;

are fundamentally planning considerations.

However, Act 172 was enacted long before modern hyperscale data centres and the current understanding of low frequency noise.

Therefore, the key question is not whether the Act specifically mentions low frequency noise.

It does not.

The more important question is:

Does the broad planning authority provided under Act 172 allow local councils to consider low frequency noise as part of development assessment?

To answer this question, the relevant provisions of Act 172 need to be examined.

Section 2 — Interpretation

Relevant Provision

Section 2 of Act 172 provides definitions for important terms used throughout the legislation.

Among the relevant definitions are:

“development” means the carrying out of any building, engineering, mining, industrial, or other similar operation in, on, over, or under land, the making of any material change in the use of any land or building or any part thereof, or the subdivision or amalgamation of lands; and “develop” shall be construed accordingly;

and:

“local authority” means any city council, municipal council, municipality, district council, town council, town board, local council, rural board, or other similar authority established by or under any written law.

What This Means

Section 2 establishes the scope of what activities fall under planning control.

The definition of development is intentionally broad.

It is not limited only to constructing buildings.

It includes:

• building works;
• engineering works;
• industrial activities;
• commercial activities;
• changes in land use.

A data centre clearly falls within this definition because it involves:

• construction of large buildings;
• installation of extensive mechanical and electrical systems;
• commercial operation of digital infrastructure.

The definition of local planning authority confirms that local councils are the bodies responsible for exercising planning control within their jurisdiction.

Relevance to Low Frequency Noise

Although Section 2 does not mention noise, acoustics or environmental impacts, the broad definition of development is significant.

A data centre is not simply a building.

It is an operational facility involving:

• cooling infrastructure;
• electrical equipment;
• mechanical systems;
• continuous industrial-scale operation.

Therefore, potential environmental effects arising from these systems may fall within the broader assessment of a development proposal.

From a planning perspective, low frequency noise is not being considered as a separate category of regulation under Section 2.

Rather, it may be considered as one aspect of evaluating whether a proposed development is suitable within its surrounding environment.

MDCO Analysis

Section 2 provides the foundation that allows data centres to be assessed as a type of development subject to planning control.

However, it does not itself create a specific obligation for councils to assess low frequency noise.

The relevance of LFN depends on how other provisions of Act 172 are applied.

Section 12 — Preparation of draft local plans

Relevant Provision

Section 12 establishes the requirement for local planning authorities to prepare local plans.

The section provides that:

“the local planning authority shall as soon as practicable prepare a draft local plan for the whole of its area.”

The Act further provides that local plans should contain:

“A draft local plan shall consist of … proposals for … the development of; the use of land in; (and) the protection and improvement of the physical environment of … the area of the local plan”

What This Means

A Local Plan is the primary planning document used by a local authority to guide development within its jurisdiction.

It establishes:

• land-use zoning;
• development policies;
• planning objectives;
• future growth strategies.

For example, a Local Plan may identify:

• industrial zones;
• commercial areas;
• residential areas;
• environmentally sensitive locations.

It provides the planning basis against which individual development applications are assessed.

Relevance to Low Frequency Noise

Section 12 is important because it provides a mechanism for local planning authorities to incorporate environmental considerations into planning policies.

A Local Plan could potentially include considerations relating to:

• compatibility between industrial developments and nearby residential areas;
• protection of environmental quality;
• requirements for appropriate mitigation measures.

For example, if certain types of industrial development generate persistent environmental noise, planning policies could potentially guide:

• suitable separation distances;
• site selection;
• development controls.

MDCO Analysis

Section 12 does not provide a specific requirement for local plans to address low frequency noise.

However, the broad planning function of local plans provides a possible pathway for emerging environmental considerations to be incorporated.

The practical question becomes:

If low frequency noise is increasingly recognised as a potential environmental consideration, should future local plans provide clearer guidance on when and how it should be assessed?

Section 21 — Application for Planning Permission

Relevant Provision

Section 21 establishes the requirement for obtaining planning permission before undertaking development.

The section provides that:

“An application for planning permission in respect of a development shall be made to the local planning authority…”

What This Means

Section 21 creates the legal mechanism through which development proposals come under the control of the Local Planning Authority.

Before development begins, the applicant must submit information required for planning assessment.

This allows the planning authority to evaluate:

• whether the development is suitable;
• whether it complies with planning policies;
• whether conditions should be imposed.

Relevance to Low Frequency Noise

Section 21 represents one of the earliest points where low frequency noise could potentially be considered.

During planning submission, applicants may provide information relating to:

• site layout;
• equipment arrangement;
• environmental assessments;
• mitigation proposals.

For a data centre, relevant acoustic considerations could include:

• location of cooling towers;
• distance from residential areas;
• acoustic screening;
• predicted operational noise.

Because these decisions occur before construction, planning approval provides an opportunity to influence design choices.

MDCO Analysis

Section 21 provides the procedural gateway for considering environmental impacts associated with development.

However, the section itself does not specify what technical assessments must be submitted.

The effectiveness of considering LFN therefore depends on:

• planning guidelines;
• local authority requirements;
• technical standards;
• conditions imposed during approval.

Section 22 — Determination of Planning Applications and Conditions of Approval

Relevant Provisions

Section 22 is the central provision governing how a Local Planning Authority (LPA) determines an application for planning permission.

Section 22(2) provides that:

“In dealing with an application for planning permission, the local planning authority shall take into consideration such matters as are in its opinion expedient or necessary for proper planning and in particular—”

including:

“(a) the provisions of the development plan, if any;”

“(aa) the direction given by the Committee, if any;”

“(b) the provisions that it thinks are likely to be made in any development plan under preparation or to be prepared, or the proposals relating to those provisions;”

“(ba) the provisions of the Sewerage Services Act 1993 (Act 508);”

“(bb) the development proposal report;”

“(c) the objections, if any, made under section 21.”

After considering these matters, Section 22(3) provides that the Local Planning Authority may:

“…grant planning permission either absolutely or subject to such conditions as it thinks fit to impose, or refuse to grant planning permission.”

Section 22(5) further provides that conditions imposed under subsection (3) may include measures relating to the protection of the physical environment, natural topography and landscape, the preservation and planting of trees, the provision of open spaces, regulation of adjoining land, and ensuring compatibility with the surrounding built environment.

What This Means

Section 22 establishes the complete statutory framework for determining planning applications.

Rather than limiting planning decisions to zoning compliance or land use alone, the Act requires the Local Planning Authority to consider all matters that it considers “expedient or necessary for proper planning”, together with the specific matters identified in the legislation.

These include:

• the applicable development plan;
• directions issued by the State Planning Committee;
• emerging planning policies;
• the Development Proposal Report submitted by the applicant; and
• objections received during the public consultation process.

Perhaps the most significant feature of Section 22 is the broad opening phrase:

“…such matters as are in its opinion expedient or necessary for proper planning…”

This wording intentionally avoids prescribing an exhaustive list of planning considerations. Instead, it gives Local Planning Authorities considerable discretion to determine what matters are relevant to achieving proper planning outcomes.

After considering these matters, the authority is not restricted to simply approving or rejecting the proposal. Under Section 22(3), it may grant planning permission subject to conditions that it considers appropriate, while Section 22(5) illustrates the broad range of matters that such conditions may address.

Taken together, these provisions establish a flexible planning framework that allows Local Planning Authorities to both assess potential impacts and require measures to manage them before development proceeds.

Relevance to Low Frequency Noise

Although Act 172 does not expressly mention acoustics or low frequency noise, Section 22 provides what is arguably the strongest statutory basis for considering such issues during the planning process.

A Local Planning Authority could reasonably conclude that low frequency noise is a matter “expedient or necessary for proper planning” where it may affect the compatibility of a proposed development with its surrounding environment.

For large data centres, relevant planning considerations may include:

• continuous 24-hour operation;
• proximity to residential neighbourhoods and other sensitive receptors;
• the scale and location of cooling towers and other mechanical equipment;
• cumulative impacts where multiple industrial developments are concentrated within the same area.

The Act also expressly requires consideration of the Development Proposal Report, which may already contain environmental and technical information relevant to acoustic performance.

Where the Local Planning Authority considers further assessment necessary, Section 22(3) provides the legal mechanism to attach planning conditions that address potential low frequency noise impacts.

Such conditions could potentially require:

Submission of acoustic assessments, including:

• predictive acoustic modelling;
• octave-band noise analysis;
• equipment sound power data;
• assessment of nearby sensitive receptors.

Implementation of acoustic mitigation measures, including:

• strategic location of cooling towers and mechanical plant;
• acoustic barriers or enclosures;
• minimum separation distances from residential areas;
• quieter equipment specifications where appropriate.

Post-construction verification, including:

• commissioning acoustic measurements;
• confirmation that installed equipment performs as assessed;
• submission of verification reports where required.

These conditions would not regulate the ongoing operation of the facility directly. Rather, they would ensure that potential acoustic impacts have been appropriately assessed and addressed before the development becomes operational.

MDCO Analysis

Section 22 does not create a specific statutory requirement to assess low frequency noise.

However, when read as a whole, it provides Local Planning Authorities with broad discretion to:

• consider environmental factors that are relevant to proper planning;
• determine whether additional acoustic information is required; and
• impose planning conditions to mitigate potential impacts where appropriate.

From an MDCO perspective, the key issue is therefore not whether Act 172 provides the legal authority, but how that authority is interpreted and applied in practice.

Several important questions remain:

• Under what circumstances is low frequency noise considered a planning issue?
• Do Local Planning Authorities routinely request octave-band acoustic assessments for large data centres?
• When are acoustic mitigation measures imposed as planning conditions?
• Is post-construction acoustic verification ever required before planning conditions are considered fulfilled?
• Are existing planning powers sufficient, or is additional technical guidance needed to support consistent implementation across different local authorities?

These questions are not answered directly by Act 172. They depend on the interpretation of Section 22 by Local Planning Authorities, supported by planning policy, technical guidance and professional advice.

MDCO Insight: Section 22 of Act 172 provides Local Planning Authorities with broad powers to consider relevant planning issues and impose appropriate conditions, making the practical application of those powers—rather than their legal existence—the key question for regulating data centre low frequency noise.

Summary: What Act 172 Allows and Does Not Allow

Act 172 Expressly Provides	Act 172 Does Not Explicitly Mention
Land use planning and development control	Low frequency noise (LFN)
Planning permission approval or refusal	Data centres
Consideration of matters “expedient or necessary for proper planning” (Section 22(2))	Cooling towers or other mechanical plant acoustics
Consideration of the Development Proposal Report and public objections	Frequency-based acoustic assessment
Power to impose planning conditions (Section 22(3) and Section 22(5))	Octave-band or one-third octave-band assessment
Protection of the physical environment and compatibility with surrounding development	Specific LFN criteria, limits or compliance thresholds

Conclusion

The review of Act 172 indicates that the legislation provides Local Planning Authorities with broad statutory powers to evaluate development proposals, consider matters necessary for proper planning, and impose planning conditions where appropriate.

However, the Act does not contain provisions that specifically address:

• low frequency noise;
• data centres;
• cooling infrastructure acoustics; or
• octave-band or frequency-based noise assessment.

This distinction is significant.

The principal issue is not necessarily the absence of legal authority, but whether the existing statutory powers are interpreted and applied to address potential low frequency noise impacts during the planning process.

For large data centres, effective implementation may require:

• clearer planning guidance;
• appropriate technical assessment methodologies;
• consistent application across Local Planning Authorities; and
• greater awareness among planning officers, technical agencies and industry stakeholders.

The following sections examine how national, state and local planning policies support the implementation of Act 172, and whether they provide additional direction for considering low frequency noise during planning approval.

MDCO Insight: Act 172 already provides Local Planning Authorities with broad powers to consider planning impacts and impose conditions; the key challenge is applying those powers consistently to low frequency noise.

From National Policy to Local Practice

The Town and Country Planning Act 1976 (Act 172) provides the legal foundation for planning control.

However, planning decisions do not operate in isolation.

A development proposal submitted to a local council is influenced by a hierarchy of planning documents that gradually translate broad national objectives into site-specific decisions.

The relationship can be summarised as:

National Physical Plan
↓
State Structure Plan
↓
Local Plan
↓
Planning Permission
↓
Conditions of Approval

Each level addresses different questions.

The National Physical Plan considers Malaysia’s long-term spatial development direction.

The State Structure Plan translates national objectives into state priorities.

The Local Plan establishes detailed land-use policies within a local authority area.

Finally, planning permission applies these policies to an individual development proposal.

For low frequency noise, this hierarchy is important because potential impacts often depend on decisions made at multiple levels:

• where facilities are located;
• how land uses are separated;
• how development intensity is controlled;
• what conditions are imposed during approval.

The following sections examine how each planning layer may relate to the consideration of low frequency noise from large data centres.

National Physical Plan: The Strategic Planning Foundation

What Is the National Physical Plan?

The National Physical Plan (NPP) is Malaysia’s highest-level spatial planning framework.

Prepared by PLANMalaysia under the framework of Act 172, the NPP provides strategic direction for the country’s physical development.

Unlike a Local Plan, the NPP does not approve individual developments.

Instead, it establishes national principles relating to:

• spatial growth;
• urban development;
• infrastructure planning;
• environmental sustainability;
• balanced regional development.

The purpose of the NPP is to ensure that national development occurs in an organised and sustainable manner.

Environmental Sustainability Principles

One of the important themes within the National Physical Plan is the integration of environmental considerations into spatial planning.

The NPP recognises that development decisions should consider:

• environmental protection;
• resource management;
• sustainable land use;
• resilience of communities and ecosystems.

This represents an important planning principle.

Modern infrastructure development cannot be considered only from the perspective of economic benefits.

It must also consider compatibility with surrounding environmental conditions.

Relevance to Data Centre Development

Large data centres represent a new category of infrastructure development.

They require:

• significant electricity supply;
• water infrastructure;
• large land parcels;
• supporting industrial systems.

Therefore, their location and expansion need to be considered within broader national infrastructure planning.

From a planning perspective, the NPP provides the foundation for asking questions such as:

• Is the location suitable for large infrastructure?
• Is supporting infrastructure available?
• Is development compatible with surrounding land uses?
• Are environmental impacts appropriately considered?

Does the National Physical Plan Create Obligations Regarding Low Frequency Noise?

The answer is:

Not directly.

The NPP does not establish:

• LFN limits;
• acoustic assessment requirements;
• cooling tower noise criteria;
• data centre-specific noise controls.

However, this does not mean LFN is outside the scope of planning considerations.

The NPP establishes broader principles of:

• sustainable development;
• environmental compatibility;
• responsible infrastructure planning.

These principles provide the policy context within which lower-level planning documents and approval decisions are made.

MDCO Analysis

The National Physical Plan does not regulate low frequency noise.

However, it establishes an important planning philosophy:

Large infrastructure should be planned in a manner that balances economic development with environmental and community considerations.

Therefore, LFN is more likely to enter the planning process through the interpretation and implementation of lower-level planning instruments.

State Structure Plans: Translating National Policy into State Strategy

Role of the State Structure Plan

Between the National Physical Plan and the Local Plan sits the State Structure Plan, one of the principal planning documents established under the Town and Country Planning Act 1976 (Act 172).

Every state in Peninsular Malaysia prepares its own State Structure Plan to translate national planning policies into state-level development strategies.

While the National Physical Plan establishes broad national objectives, the State Structure Plan provides strategic direction for matters such as:

• economic development;
• population growth;
• urban expansion;
• industrial development;
• transport and utility infrastructure;
• environmental management; and
• long-term land use planning.

The State Structure Plan therefore provides the strategic framework within which Local Planning Authorities prepare their Local Plans and assess development proposals.

State Structure Plans and Data Centre Development

As data centre investment expands across Malaysia, State Structure Plans increasingly influence where these developments are encouraged.

Although each state adopts its own planning priorities, State Structure Plans commonly identify:

• strategic industrial growth areas;
• technology and innovation corridors;
• major infrastructure investment zones;
• transport and utility networks;
• environmentally sensitive areas; and
• areas intended for future urban expansion.

These strategic directions influence where large infrastructure developments, including data centres, are likely to be concentrated.

Johor as an Example

Johor provides a useful illustration of how a State Structure Plan can shape data centre development.

Through its strategic planning policies, Johor has identified areas associated with:

• Iskandar Malaysia;
• Johor Bahru;
• Iskandar Puteri; and
• major industrial and technology corridors

as key locations for industrial, logistics and digital infrastructure investment.

These strategic planning decisions have contributed to Johor becoming one of Malaysia’s leading destinations for hyperscale data centre development.

Relevance to Low Frequency Noise

State Structure Plans generally do not regulate the detailed environmental performance of individual developments.

Instead, they influence broader planning decisions that may affect future community exposure.

For example, locating data centres within established industrial or technology zones may reduce potential conflicts with nearby residential communities, while encouraging similar developments close to expanding urban areas may require greater attention to long-term environmental compatibility.

In this way, State Structure Plans influence matters such as:

• land use compatibility;
• concentration of industrial activities;
• separation between industrial developments and sensitive receptors; and
• the long-term pattern of urban growth.

Although these decisions are strategic rather than project-specific, they can significantly influence the planning context within which low frequency noise is later assessed.

How State Structure Plans Influence Local Council Decisions

Local Planning Authorities do not determine planning applications in isolation.

Under Act 172, Local Plans are prepared within the strategic framework established by the relevant State Structure Plan, which in turn implements the broader objectives of the National Physical Plan.

Consequently, State Structure Plans influence:

• where major industrial developments are encouraged;
• how industrial precincts are planned;
• how infrastructure investment is coordinated; and
• the broader planning context within which Local Planning Authorities assess individual development proposals.

While the detailed assessment of a particular data centre remains the responsibility of the Local Planning Authority, that assessment is undertaken within the strategic direction established by the State Structure Plan.

MDCO Analysis

State Structure Plans provide the strategic planning framework that guides long-term land use and infrastructure development across each state.

Although they do not establish specific requirements for low frequency noise, they influence one of the most fundamental planning questions:

Where should large, continuously operating infrastructure such as data centres be located to achieve both economic development and long-term environmental compatibility?

MDCO Insight: State Structure Plans shape the strategic location of future data centre development, influencing the planning context in which low frequency noise may later need to be assessed.

Local Plans: The Local Planning Framework

Why the Local Plan Is Important

Among all statutory planning documents, the Local Plan has the most direct influence on day-to-day planning decisions made by Local Planning Authorities.

Prepared under the framework established by the Town and Country Planning Act 1976 (Act 172), every Local Plan translates national and state planning strategies into detailed planning policies for a specific local authority area.

A Local Plan provides the basis for:

• land use zoning;
• development intensity;
• planning objectives;
• development control policies; and
• compatibility between different land uses.

When a planning application is submitted, the Local Plan is one of the principal documents considered by the Local Planning Authority under Section 22 of Act 172.

Local Plans and Development Compatibility

A fundamental purpose of every Local Plan is to determine where different types of development should occur and how they should coexist within the surrounding environment.

Typical land use categories include:

• residential;
• commercial;
• industrial;
• institutional;
• recreational; and
• infrastructure and utility uses.

These distinctions exist because different activities generate different levels of:

• traffic;
• environmental impact;
• operational activity;
• infrastructure demand; and
• community interaction.

Industrial developments are generally directed towards areas where supporting infrastructure is available and where potential conflicts with sensitive land uses can be appropriately managed.

MBIP as an Example

The Majlis Bandaraya Iskandar Puteri (MBIP) Local Plan provides a useful example of how these planning principles are applied in practice.

MBIP has become one of Malaysia’s most significant locations for data centre development, with numerous existing and proposed facilities concentrated within its jurisdiction.

As a result, the MBIP Local Plan offers an appropriate case study for examining how existing planning policies may apply to emerging issues such as data centre low frequency noise.

Although the discussion in this article uses MBIP as an example, the same planning principles apply broadly to Local Plans prepared by other Local Planning Authorities throughout Malaysia.

Data Centres Within Existing Planning Categories

One practical question facing many Local Planning Authorities is how modern data centres fit within existing planning classifications.

A data centre differs from a conventional manufacturing facility.

It generally does not involve:

• manufacturing processes;
• material production; or
• large numbers of on-site workers.

However, it does involve:

• industrial-scale electrical infrastructure;
• extensive mechanical cooling systems;
• continuous 24-hour operation; and
• significant electricity and utility demand.

These characteristics influence important planning considerations, including:

• appropriate land use zoning;
• compatibility with surrounding development;
• infrastructure requirements; and
• the scope of technical assessments required during planning approval.

Sensitive Receptors and Local Planning Considerations

The Local Plan also seeks to ensure that developments are compatible with neighbouring land uses.

This becomes particularly important where large industrial infrastructure is located close to sensitive receptors, such as:

• residential neighbourhoods;
• schools;
• healthcare facilities;
• places of worship;
• parks and recreational areas.

Protecting the amenity of these locations has long been one of the fundamental objectives of land use planning.

The question explored in this article is whether persistent low frequency noise generated by continuously operating mechanical infrastructure should also be considered as one aspect of land use compatibility.

Could Low Frequency Noise Fit Within Existing Planning Objectives?

Potentially, yes.

Most Local Plans already contain planning objectives relating to:

• environmental quality;
• public amenity;
• compatible land use;
• sustainable development; and
• protection of the living environment.

Although low frequency noise is rarely mentioned explicitly, it could potentially be considered within these broader planning objectives where the Local Planning Authority considers it relevant to achieving proper planning outcomes.

Whether this occurs consistently, however, depends upon:

• appropriate technical assessment methodologies;
• planning guidance;
• professional expertise; and
• consistent interpretation by Local Planning Authorities.

Without these supporting elements, consideration of low frequency noise may vary between projects and between different local authorities.

MDCO Analysis

The Local Plan represents the point at which broad national and state planning policies are translated into practical planning decisions.

For data centres, it provides the closest connection between statutory planning powers and the assessment of potential local environmental impacts.

If low frequency noise is to become a routine planning consideration, the Local Plan and its associated development control processes are likely to provide the most practical mechanism for incorporating scientific understanding into everyday planning decisions.

MDCO Insight: The Local Plan is where strategic planning policy becomes practical development control, making it the most direct planning mechanism through which low frequency noise could be considered during data centre planning approval.

Data Centre Planning Guidelines

As Malaysia’s data centre sector has expanded, planning authorities have begun developing more specific guidance for this type of infrastructure.

These guidelines provide additional context beyond general planning legislation.

However, they should be understood as planning guidance rather than replacements for statutory planning powers.

PLANMalaysia Data Centre Planning Guidelines

Purpose and Planning Approach

PLANMalaysia has developed guidance to support more coordinated planning of data centre developments.

The federal Data Centre Planning Guidelines, approved by the Cabinet on 8 October 2024, apply to data centre developments exceeding 1 MVA. Among their key planning controls are requirements that new facilities be located within designated industrial or commercial zones and that appropriate buffer zones be provided where developments are situated near residential areas, helping to minimise potential noise disturbance and land-use conflicts.

The guidelines recognise that data centres are unique infrastructure facilities requiring consideration of:

• strategic location;
• electricity supply;
• water resources;
• telecommunications connectivity;
• land suitability;
• environmental considerations.

Site Selection Considerations

Site selection is a critical planning issue.

Important considerations include:

• availability of supporting infrastructure;
• suitability of land use;
• accessibility;
• surrounding development patterns.

This approach is directly relevant to LFN because location strongly influences potential community exposure.

A facility located within a suitable industrial area with adequate separation may present a different environmental profile compared with a facility located immediately adjacent to residential development.

Environmental Considerations

Data centre planning guidance generally emphasises responsible development, including consideration of:

• energy efficiency;
• water management;
• environmental impacts.

At present, LFN is generally not identified as a specific standalone requirement.

However, the broader environmental compatibility principles provide a possible pathway for future consideration.

MDCO Analysis

PLANMalaysia guidance demonstrates that data centres are increasingly recognised as a distinct infrastructure category.

As understanding of environmental impacts evolves, acoustic considerations such as LFN could potentially become part of future planning guidance.

Johor Data Centre Planning Guidelines

Johor’s Strategic Context

Johor has positioned itself as one of Malaysia’s key locations for data centre development.

This growth is supported by:

• proximity to Singapore;
• industrial land availability;
• infrastructure development;
• investment strategies.

Given the scale and concentration of planned facilities, state-specific planning considerations become increasingly important.

Additional Planning Expectations

Johor provides a useful example of how general planning principles can be translated into practical development requirements. The Johor State Data Centre Development Planning Guidelines include a minimum 50-metre buffer zone between the data centre building line—including major support infrastructure such as chillers and standby generators—and the boundary of an adjacent residential lot. This requirement illustrates how planning policy can address potential land-use compatibility issues, including environmental noise, through spatial planning controls rather than operational noise limits alone.

Johor’s data centre planning approach focuses on issues such as:

• infrastructure readiness;
• land suitability;
• sustainability;
• investment facilitation.

These considerations reflect the need to balance:

• economic development;
• infrastructure requirements;
• environmental responsibility.

Relevance to Low Frequency Noise

Similar to national and local planning documents, current data centre guidance generally does not establish specific LFN assessment requirements.

However, the principles behind these guidelines raise relevant questions:

• Are nearby communities sufficiently considered?
• Are environmental impacts assessed early?
• Are mitigation opportunities identified before construction?

MDCO Analysis

Johor’s data centre planning framework provides an opportunity to incorporate emerging environmental considerations at an early stage.

As the sector continues to grow, clearer expectations regarding issues such as low frequency noise may provide greater certainty for:

• developers;
• local councils;
• consultants;
• communities.

Summary: From Policy to Project Approval

Planning Level	Main Function	Potential Relevance to Low Frequency Noise
National Physical Plan	National spatial development direction	Supports principles of sustainable and compatible development
Johor State Structure Plan	State growth and infrastructure strategy	Influences location and concentration of major infrastructure
MBIP Local Plan	Local land-use control	Provides framework for assessing compatibility with surrounding uses
Data Centre Planning Guidelines	Sector-specific planning guidance	Opportunity to integrate emerging environmental considerations
Planning Permission	Project-level approval	Potential mechanism for conditions and mitigation

Conclusion

The review of Malaysia’s planning hierarchy shows that low frequency noise does not currently appear as a specific requirement within major planning policy documents.

However, the absence of explicit LFN terminology does not necessarily mean that planning authorities lack a pathway to consider it.

Existing planning frameworks already address broader principles of:

• environmental compatibility;
• sustainable development;
• appropriate land use;
• protection of community interests.

The key question is therefore not whether the planning system recognises LFN by name.

The more practical question is:

Can existing planning principles be translated into consistent assessment practices when new infrastructure, such as large data centres, introduces emerging environmental considerations?

This question leads directly to the next stage of analysis:

How planning approval conditions may be used to address potential low frequency noise considerations before construction begins.

MDCO Insight: Existing planning frameworks provide a foundation for considering environmental compatibility, but translating that foundation into practical low frequency noise assessment remains an important area for further clarification.

Planning Conditions and Current Regulatory Questions

Planning approval is often misunderstood as a simple decision:

Approved or rejected.

In practice, modern planning systems operate differently.

Planning approval is a mechanism through which authorities assess whether a proposed development is compatible with its surrounding environment and whether potential impacts can be appropriately managed.

A development may be approved because it is considered suitable in principle, while specific conditions are imposed to control potential impacts throughout the life of the project.

For large-scale infrastructure developments such as data centres, this distinction is particularly important.

The question is therefore not only:

Should a data centre be approved?

but also:

What conditions are necessary to ensure that the development integrates appropriately with its surrounding community and environment?

For low frequency noise, this raises an important planning question:

Can existing planning powers be used to address potential acoustic impacts before a facility begins operation?

Can Planning Conditions Address Low Frequency Noise?

Under Malaysia’s planning framework, planning authorities generally have the ability to impose conditions when granting planning permission.

The purpose of such conditions is to ensure that approved developments comply with planning objectives, minimise adverse impacts and remain compatible with surrounding land uses.

In practice, planning conditions are already commonly used to manage many aspects of development impact.

Examples include:

Traffic management

Conditions may require:

• traffic impact assessments;
• road improvements;
• access arrangements;
• restrictions on certain activities.

Drainage and flood management

Conditions may require:

• stormwater management systems;
• drainage improvements;
• retention ponds;
• compliance with technical requirements.

Environmental protection

Conditions may address:

• landscaping requirements;
• buffer zones;
• environmental mitigation measures;
• protection of sensitive areas.

Building and site design

Conditions may influence:

• building orientation;
• setbacks;
• site layout;
• screening measures.

These examples demonstrate an important principle:

Planning conditions are not limited only to controlling the physical structure of a development.

They can also be used to manage the relationship between a development and its surrounding environment.

This creates the possibility that acoustic considerations, including low frequency noise, could potentially be addressed through appropriate planning conditions.

Potential Application to Low Frequency Noise

At present, low frequency noise is not typically identified as a standalone planning category in the same way as traffic, drainage or land-use zoning.

However, the characteristics of large data centres create a potential planning relevance.

Modern hyperscale facilities may include:

• large numbers of cooling towers;
• mechanical cooling equipment;
• pumps;
• transformers;
• continuously operating ventilation systems.

These systems may operate continuously over many years, creating the possibility of long-term acoustic interaction with surrounding land uses.

From a planning perspective, potential conditions could include requirements such as:

Octave-Band Acoustic Assessment

Traditional environmental noise assessments often rely heavily on overall A-weighted sound levels.

However, low frequency noise is frequency-dependent.

A planning condition could potentially require additional assessment, such as:

• octave-band analysis;
• identification of dominant low frequency components;
• assessment at sensitive receptors;
• comparison against relevant guidance.

This would provide additional information beyond a single dBA value.

Cooling Equipment Acoustic Information

Cooling systems are among the most important acoustic sources in large data centres.

Planning authorities could potentially consider information such as:

• cooling tower manufacturer acoustic data;
• fan operating characteristics;
• equipment sound power levels;
• expected operating scenarios.

This would allow acoustic considerations to be integrated earlier during site planning rather than only after complaints occur.

Equipment Layout and Site Design

Planning conditions could potentially influence:

• location of cooling towers;
• separation distance from sensitive receptors;
• orientation of mechanical equipment;
• placement of acoustic barriers;
• screening strategies.

This follows the same planning principle applied to many other development impacts:

Early design decisions are usually more effective than later corrective measures.

Commissioning Verification

Another possible approach is verification after construction.

Similar to other technical requirements, planning authorities could potentially consider whether acoustic performance should be verified after completion through:

• field measurements;
• operational testing;
• confirmation against approved design assumptions.

This would create a link between the predicted performance during planning approval and the actual performance after operation begins.

However, whether such requirements are necessary, appropriate or proportionate requires careful consideration.

Different facilities, technologies and locations may require different approaches.

Planning Conditions as a Preventive Approach

One of the key lessons from environmental management is that prevention is generally more effective than remediation.

Once a facility is operational, addressing low frequency noise may become significantly more difficult because:

• equipment has already been installed;
• surrounding communities have already experienced the facility;
• mitigation options may be limited;
• additional modifications may be costly.

In contrast, many acoustic outcomes can be influenced during earlier design stages.

Examples include:

• selecting quieter equipment;
• adjusting equipment placement;
• increasing separation distance;
• incorporating acoustic treatment;
• designing appropriate operational controls.

This creates a potential role for planning approval as an early opportunity to consider acoustic compatibility.

The objective is not to prevent development.

Rather, it is to ensure that infrastructure growth occurs with appropriate consideration of surrounding communities.

MDCO Insight: Planning conditions provide a potential pathway to address low frequency noise before impacts occur, by integrating acoustic considerations into early development decisions.

Current Practice: What Remains Unknown

While the planning framework provides broad powers for managing development impacts, an important question remains:

How are these powers currently applied in practice for low frequency noise from data centres?

This is a question that requires engagement with planning authorities, technical agencies, developers and consultants.

At present, publicly available information does not clearly establish a consistent nationwide approach regarding low frequency noise assessment during data centre planning approvals.

Important areas for clarification include:

Does the Local Planning Authority Currently Request Low Frequency Noise Assessment?

A key question is whether planning applications for large mechanical infrastructure developments currently require specific assessment of low frequency noise.

For example:

• Is octave-band analysis requested?
• Are low frequency components considered separately from overall noise levels?
• Are cooling system acoustic characteristics reviewed during planning?

Understanding current practice is important because different authorities may adopt different approaches depending on:

• local planning policies;
• site context;
• surrounding land uses;
• technical advice received.

Are Conventional dBA Measurements Considered Sufficient?

Most environmental noise regulations and assessments traditionally rely on A-weighted sound levels.

This approach remains widely accepted because it provides a practical method for comparing many common environmental noise sources.

However, as discussed in previous MDCO articles, low frequency noise presents additional challenges because:

• A-weighting reduces the contribution of low frequency sound;
• tonal components may influence perception;
• indoor response may differ from outdoor measurements.

A key question for planning authorities is therefore:

Under what circumstances should additional low frequency assessment be considered beyond conventional dBA measurements?

Are Cooling Equipment Acoustic Characteristics Reviewed?

For large data centres, cooling infrastructure represents one of the most important acoustic design considerations.

Questions for clarification include:

• Are cooling tower acoustic specifications submitted during planning review?
• Are equipment manufacturers’ sound power data considered?
• Are alternative layouts evaluated based on acoustic performance?

These questions are particularly relevant because acoustic performance can often be influenced before construction begins.

Are Post-Completion Acoustic Verifications Required?

Another area for discussion is whether approved acoustic assumptions are verified after a facility becomes operational.

Possible approaches could include:

• commissioning measurements;
• compliance verification;
• operational noise monitoring.

The appropriate approach would depend on factors such as:

• facility size;
• surrounding land use;
• proximity to residential areas;
• predicted acoustic exposure.

Questions for Dialogue with Local Councils

As part of MDCO’s observatory role, the purpose of these questions is not to challenge existing planning processes.

Rather, they aim to understand current practice and identify opportunities for improving transparency and technical consistency.

Planning Authority

How does the council currently assess potential noise impacts during planning approval for large-scale developments?

Low Frequency Noise

Is low frequency noise specifically considered during planning assessment of developments containing large mechanical systems such as data centres?

Assessment Methods

Are conventional dBA measurements considered sufficient, or are additional frequency-based assessments such as octave-band analysis considered where appropriate?

Technical Information

Does the planning review process consider equipment-specific acoustic information, such as cooling tower or mechanical system sound power data?

Future Guidance

Is the council considering additional guidance or assessment approaches for emerging infrastructure types with significant continuous mechanical systems?

These questions are intended to support constructive dialogue between planning authorities, developers, technical professionals and communities.

The objective is not to introduce unnecessary regulatory complexity, but to ensure that planning decisions remain aligned with evolving engineering knowledge and community expectations.

MDCO Insight: The key question is not whether planning authorities have power to consider low frequency noise, but how existing planning tools can be applied effectively as data centre developments become larger and closer to communities.

The Observatory Perspective

Low frequency noise from data centres represents a relatively new planning challenge arising from the rapid expansion of large-scale digital infrastructure.

Scientific understanding of low frequency noise has advanced significantly over recent decades.

Research has moved beyond the simple question of whether low frequency sound can be heard and has increasingly examined how acoustic characteristics, environmental conditions, building response and human sensitivity interact to influence community experience.

The strongest scientific evidence consistently relates to annoyance and sleep disturbance, while research into broader physiological effects and the detailed mechanisms of low frequency sound perception continues to develop.

For data centre development, this does not mean that every facility will create unacceptable acoustic impacts.

Nor does it suggest that low frequency noise is inherently harmful in every situation.

Instead, the more practical conclusion is that low frequency noise should be treated as an engineering and planning consideration that deserves systematic evaluation alongside other infrastructure considerations such as electricity demand, water consumption, environmental impact and community compatibility.

The planning approval stage represents one of the earliest opportunities to consider these issues.

At this stage, key decisions are still being made regarding:

• site selection;
• surrounding land uses;
• equipment configuration;
• facility layout;
• potential mitigation measures; and
• conditions of approval.

The purpose of examining the existing planning framework is therefore not to determine whether current regulations are adequate or inadequate before further investigation.

Rather, it is to understand how existing planning powers, policies and approval processes may already provide mechanisms for considering potential impacts, while identifying areas where additional guidance or clarification may be beneficial.

For local councils, developers, consultants and communities, a clearer understanding of how low frequency noise fits within the existing planning system can support more informed decisions before developments become difficult or costly to modify.

As Malaysia continues to attract larger and more complex data centre developments, proactive assessment and transparent dialogue will become increasingly important in balancing digital infrastructure growth with environmental quality and community confidence.

MDCO Insight: Understanding how existing planning powers apply to low frequency noise can help local councils, developers and communities make better decisions before development becomes irreversible.

Selected References

Legislation

• Government of Malaysia. Town and Country Planning Act 1976 (Act 172). The principal legislation establishing the framework for town and country planning in Peninsular Malaysia, including development control powers, planning permission procedures and the role of Local Planning Authorities.

Planning Documents

• Federal Department of Town and Country Planning (PLANMalaysia). National Physical Plan (NPP). Provides the national-level spatial planning framework for Malaysia, including principles relating to sustainable development, infrastructure planning and balanced urban growth.
• Johor State Government / PLANMalaysia Johor. Johor State Structure Plan. Provides state-level strategic planning direction covering economic development, urban growth, infrastructure and environmental considerations.
• Iskandar Puteri City Council (MBIP). Local Plan and Development Planning Documents. Provides the local planning framework governing land use, development control and planning considerations within the MBIP administrative area.
• PLANMalaysia. Planning Guideline for Data Centre. Provides a national planning framework for data centre development, including considerations relating to location, infrastructure and utilities, environmental aspects, development control and implementation requirements for data centre projects.

Acoustic and Environmental Noise References

• World Health Organization (WHO). Environmental Noise Guidelines for the European Region (2018). Reviews international scientific evidence on environmental noise and health outcomes, including annoyance, sleep disturbance and cardiovascular effects.
• International Organization for Standardization (ISO). ISO 1996 Series: Acoustics — Description, Measurement and Assessment of Environmental Noise. Provides internationally recognised principles for environmental noise measurement and assessment.
• Deutsches Institut für Normung (DIN). DIN 45680: Measurement and assessment of low-frequency noise immissions in the neighbourhood. A widely referenced technical methodology for assessing low frequency noise components.
• Department for Environment, Food and Rural Affairs (DEFRA). NANR45: Proposed Criteria for the Assessment of Low Frequency Noise Disturbance. A major UK research project that investigated low frequency noise complaints, acoustic characteristics and assessment methodologies, providing one of the most influential practical frameworks for evaluating low frequency noise disturbance.
• International Organization for Standardization (ISO). ISO 9613-2: Acoustics — Attenuation of Sound During Propagation Outdoors — Part 2: General Method of Calculation. Provides a recognised engineering method for predicting outdoor sound propagation.

Citation

Malaysia Data Centre Observatory (MDCO). A09.04 Data Centre Low Frequency Noise in Planning Approval by Local Councils. MDCO Analyse Series.

MDCO Note

This article forms part of the Malaysia Data Centre Observatory (MDCO) Analyse Series, which aims to improve public understanding of data centre development through evidence-based, accessible and balanced analysis. It is intended for educational and informational purposes only and does not constitute legal, engineering, acoustic, environmental, medical or professional advice.

Low-frequency noise is a multidisciplinary subject spanning engineering, acoustics, environmental science, medicine, psychology, planning and public policy. MDCO does not advocate for or against any particular stakeholder, project, technology or regulatory position. Its role is to facilitate transparency, reduce information asymmetry and support informed discussion by explaining complex issues through publicly verifiable information and multiple complementary perspectives.