THE DEPARTMENT OF LANDS AND SURVEYS (DLS) CYPRUS INTEGRATED LAND INFORMATION SYSTEM PLANNING AND INFORMAL SETTLEMENTS FISCAL TEAM PROCEDURES

Transcription

1 THE DEPARTMENT OF LANDS AND SURVEYS (DLS) CYPRUS INTEGRATED LAND INFORMATION SYSTEM PLANNING AND INFORMAL SETTLEMENTS FISCAL TEAM PROCEDURES E-GOVERNMENT Presented By: NEOCLIS NEOCLEOUS & VASSOS PAPADEMETRIOU THE JOINT FIG COM3, UN/ECE WPLA & UN/ECE CHLM WORKSHOP SOUNION, MARCH 2007

2 Introduction The Department of Lands and Surveys The Department of Lands and Surveys of Cyprus of the Ministry of the Interior, is the oldest governmental department of the public sector, and started its operations in the year The initial and main responsibility of the Department was the registration of immovable property on the island. However, throughout the years, the Department expanded its services and activities offered to the public, emerging into a dynamic and multifaceted organization. The Department of Lands and Surveys is highly noted throughout the world for its concrete legal system of land administration, ownership and tenure, as well as for the clear and solid procedures which are in effect throughout it. The function of land registration in Cyprus provides a safe and secure foundation for the acquisition, enjoyment and disposal of rights in land. Although the system of land registration, ownership, valuation, survey, and cartography has the prime responsibility of ensuring the protection of the interests of individual landowners, it also serves as an instrument of national policy regarding the market of real estate, as well as a mechanism to support the economic development of our country. The ways in which a proper legal system of ownership in Cyprus serves the purpose of the real estate market, can be seen in the way the Department s of Lands and Surveys land ownership recording systems operates. It contains a legal definition of real property units which accurately reflect the condition on the ground; it facilitates land transfer through a simple and secure system; eliminates the need for extensive searching for a chain of titles like in other countries; it is supported by legislation which requires it to be up to date at all times; all rights are recorded including ownership and restrictions on properties; covers all land including State land, as well as that held by individuals, firms or institutions. All the processes are fully computerized, highly visible, and clearly understood by the public, enabling everybody to have confidence in our system. The Land Information System is considered to be nationally uniform and sustainable; a basis for implementing local taxation, land use and building control; a flexible means of administering property rights; a basis for land titling which is accessible, user-friendly; a basis for delivering social justice in relation to land reform and resource allocation. A multipurpose cadastre would be the first priority for many countries nowadays; along this, the parcel of property will be the fundamental building block of an integrated system of land information. In Cyprus, the Department has managed to implement a fully integrated Land Information System that supports a wide range of decision making elements, including land conveyance, equitable taxation, resource management and environmental planning. Overall, the general strategic objective of the Department had always been to establish a fixed boundary coordinated cadastral system after a systematic resurvey, the computerization of the land records, cadastral plans, topographical maps, the complete development of the Land Information System (C.I.L.I.S.), to fully support the survey, registration, valuation and management functions of the Department, and the staged development and implementation of a National Land Information System

3 (LIS) where all agencies with land related activities can share available data for the benefit of the economy of the country. These arguments bring us to the conclusion that a good and clear legal land ownership system along with a modern cadastre is needed in every country for a sound real estate market. This system needs to be nationally uniform and sustainable; a basis for implementing local taxation, land use and building control; a flexible means of administering property rights; a basis for land titling which is accessible, user-friendly; a basis for delivering social justice in relation to land reform and resource allocation. In the future, the need for a multipurpose cadastre would be the first priority for many countries; along this, the parcel of property will be the fundamental building block of an integrated system of land information. This land information system will need to support a wide range of decision making elements, including land conveyance, equitable taxation, resource management and environmental planning. Vision DLS vision is to continuously improve, expand and reengineer this multipurpose role, in order to best serve the citizen, in accordance with all the laws and regulations prevailing nowadays in the European Union. The success will depend on its ability to adapt to all the ongoing socioeconomic changes, occurring both in Cyprus and in the European Union, which will incorporate major changes into the Legal System, and quality improvements in all of the services offered to the public, making them much more effective and highly efficient. Additionally, the means of communication with the public will expand, as DLS looks forward to more open access into our data and information concerning land matters through e-government procedures, closing down all gaps with the citizens. The achievement of DLS vision, at the same time, incorporates the continuous and ongoing training of all employees along with the relocation to newly high-tech buildings, able to accommodate our expanding computerization needs. The upgrading of all cartographical map series using modern digital techniques and equipment is also one of the major targets. The Department will continue to play an active role in pan-european projects, and cooperate with European organisations. Finally, the establishment of a National Land Information System will set up the platform for all organizations to share data and ideas, leading to the most efficient administration of land in Cyprus. Land Information System DLS operates, partially on a manual and partially on a computerized basis, a graphical multipurpose cadastre. The Department records a considerable amount of land related data. Cadastral plans are widely used as a fundamental graphic record by a wide range of agencies. Information about development, utilities, land use, water resources, geology, and even statistical data for population, industry, agriculture and planning, are recorded on, or closely related to the cadastral plans. The Government of Cyprus through the Department of Lands and Surveys (DLS) implemented a system to improve the efficiency and effectiveness of

4 Departmental activities taking advantage of available information technology and modern cost effective survey instrumentation and techniques. The general strategic objective of the country is the establishment of a fixed boundary coordinated cadastral system after a systematic resurvey, the computerization of the land records, cadastral plans, and topographical maps, the development of a number of computerized systems to support the survey, registration, valuation and management functions of the Department, the fiscal data capture of data and mass valuation, and the staged development and implementation of a National Land Information System (LIS), where all agencies with land related activities can share available data for the benefit of the economy of the country. The Cyprus LIS project is a program covering the following groups of activities: (a) The strengthening and re-computation of the National Grid System and the systematic resurvey, for cadastral purposes, of the entire island. All modern equipment and techniques such as GPS, photogrammetry and EDM tacheometry are being used, in an attempt to reach the most efficient and cost effective method. (b) The computerization of land transactions, the improvement and acceleration of valuation assessments, the reduction of duplication of land administration work among Government Agencies, and the increase of the ability of the Government to effectively manage state-lands, and expedite acquisition and requisition orders. (c) The development of a Digital Cadastral Data Base (DCDB), a Survey Data Base (SDB) and a Topographical Data Base (TDB), suitable to support an Integrated Land Information System. (d) The development of a computerized system, capable of supporting all the registration, valuation and land management functions of the Department, and the development of a Legal/Fiscal Database as a substantial component of the Land Information System. (e) The introduction of computer-assisted techniques into the Valuation processes, to achieve optimum performance, and to enable an automated general revaluation program at frequent time intervals.

5 The LIS in the Department of Lands and Surveys has been designed and developed having two major application components: a. The Survey Related Applications (Geographical Component) b. The Legal/Fiscal Applications (Legal/Fiscal Component) Basically, all Legal/Fiscal application systems have been developed in Cyprus using the case tools of ORACLE Relational Database Management System. GIS and Valuation in the Fiscal Team GIS represents a way of taking data from the real world and encoding that data with spatial references. Via some kind of spatial analysis, the raw data is transformed into information for the decision makers in the organisation, such as planning issues discussed further down. The usability of this information is dependent on the manager being able to decode, or interpret, the information. Geographic information requires some skill to interpret and some people find this easier than others. The plan in the Department was to move away from the traditional approach, focusing on cost reduction when making an investment in GIS, but focus on how to get the better value, or value added from the investment. Moving towards new performance measures needs to take account of the long term. Measuring time saved was just the start, more important is to measure how that time is then used what does this time contribute to our business. Although, the LIS Valuation project started in 1996, only now, DLS fully comprehends, the term value added and the move away from strictly financial measures. By implementing GIS, DLS has observed that the value to the business is strongly related to the extent which GIS supports the business strategy. This strategic match has given DLS a competitive advantage over competitors, with market focus and product differentiation, placing DLS in the first place in the Cyprus market, as spatial data providers. By measuring the cost of not investing in GIS in the very early years, DLS has managed to be ahead of competition. Although, it has suffered very high initial costs in data capturing, software and hardware, it now enjoys the fruits of this decision. Additional value added is created nowadays, due to the fact that there is a strong fit and alignment with the general information management strategy. From the Fiscal Sector point of view, the most important capabilities of GIS when first implemented it in the Department, were the presentation of data in a map form, the ability to query data, and thirdly the capability to perform spatial analysis. The most impressive capability of GIS is their ability to overlay attributes. Overlay capabilities may take a number of different forms. In valuation, various attributes spatial, quantitative and qualitative are needed; with the use of GIS technology, a valuer can decrease wasted time in the field, and focus on scientific analysis for achieving a better and more reliable appraisal. Whatever GIS capability or group of capabilities is used in your business application, there is almost sure to be map output that will be proudly presented to decision makers. As with any presentation tool, there are ways of using maps to

6 persuade. The first step was to use the existing infrastructure of the corporate database which contains the survey data set (based on resurvey with the use of GPS technology on the field), the digital cadastral plans (based on recent digitization of cadastral plans and other forms of data capturing), topographical overlays, and the Oracle based data-sets which include all land transactions, sales history data, etc. A major map project was created with the use of GIS, presenting sales historical data on maps, with the main target being to eliminate the manual put by valuers in the district offices. Each historical sale was connected with the land parcel, using a unique parcel id (one of the keys in our system), and all relevant information was presented instantly on a digital map, with the use of labelling on the parcels. A valuer now is able to have online sales on a map throughout Cyprus in no-time. The Department of Town Planning in cooperation with our Ministry have agreed to offer DLS all its manual Cadastral Plans, with the Planning Zones drawn on them. This will assist the Department in all its major decision making, and will be discussed further down. DLS has now proceeded in digitizing nearly 5000 cadastral plans, and by the end of the year, it will have a new planning zone layer in the Survey database. At the same time, the Valuation department, and in association with the Ministry of Agriculture, has bought satellite images of the whole country, using the Ikonos Satellite technology. By mid May 2005, satellite images are a new layer into the GIS system, and this has proved to be of prime importance to DLS. It has eliminated fraud in conveyance, as nobody can proceed with the transfer of a particular land parcel and not stating all of its characteristics, i.e. a newly built building on the parcel, or any other informal building. It was often the case that people tried to avoid transfer valuation costs in the past by claiming that their parcels were vacant and without buildings erected on them. With the use of satellite technology, DLS can locate all buildings erected, without any major problem. The use of digital photography is also incorporated since two years into a new layer in the GIS system. All valuers along with the Data Capture Valuation Team members carry digital cameras and take digital pictures of all the buildings on the island. These are again loaded in Oracle and are presented via the unique parcel id, on GIS maps, turning the system into a multipurpose valuation mechanism. By the end of this year, DLS is also introducing tablet GIS/GPS technology into the Data Capture mechanisms, mainly for navigation and online data capturing in the field. Managerial decisions are now enhanced as the Valuation Team can make judgments of value instantly, with so much relevant information available online. Better planning decisions are made with the use of maps, in terms of helping the Government decide on its acquisition plans, especially for the building of new road infrastructure. Valuation analysis is enhanced with the use of online mapping with sales analysis figures in real time. Proximity analysis is easily performed along with various buffering techniques, especially for the identification of competing land uses. A major part of this plan is to incorporate the DLS Mass Appraisal System vision into GIS. By data capturing all the relevant data for valuation and with the use of a statistical package for regression analysis, through the use of online mapping and other layer building capabilities, DLS can succeed in using mass appraisal systems, to proceed with a new General Valuation on the island for tax purposes, in very little time. This means that the role of the typical valuer will eventually change, and maybe in a few years, with all this technology involved, he will perform valuations directly from his office and not on the field!

7 These processes described above have cost DLS a great amount of money, in data capturing, software and hardware infrastructure, training, etc. It is an ongoing and live, never ending process, due to the fact that technology is moving faster than us. What is important is that DLS has to share this information through the Web via the use of Web GIS Java Technology, with other related agencies, both public and private. People will be able to build their own layers through the Web, using DLS database as their platform and eventually a lot of money will be recovered by the Department, with the sale of such service and information, to the general public. The strategic target had always been to map the business processes before mapping the ground, and proceed with an e-land Administration Infrastructure that will involve a fundamental shift in the way land registration and cadastral systems are build, and develop their information strategy, having as the core mission, the movement from existing processes, to e-processes in the near future. Planning Zones Map & Satellite Image DLS Fiscal Team

8 Property and Planning Issues in Cyprus The main department responsible for planning issues in Cyprus is the Department of Town Planning and Housing (T.P.H.). Its main activities, include the issue of planning and building permits, registration and decisions regarding all major plans on the island, such as planning zones, land use maps, local and urban plans, etc. The Department of Lands and Surveys is directly related to all the major activities taking place inside the Town Planning and Housing Department, as well as all the local authorities and municipalities in Cyprus. There is a very close cooperation among these three constituents of the Ministry of the Interior. The Department of Lands and Surveys proceeds with the registration of all land and buildings inside the Land Information System, only after the issuance of permits by the (T.P.H.). Registration will take place only after an application from the developer or any other interested owner. In order to register buildings, the Department of Lands and Surveys, requires a final inspection permit issued first by the T.P.H and then by the local authority. The Department of Lands and Surveys assists T.P.H. in all its major decision making aspects, with the issue of all cartographical plans and maps with planning zones, and land use areas. In the meantime, it enables T.P.H. access both its Digital Cadastre Database and Survey Database, in order to support its decision making and make the correct planning decisions. A very recent law has been passed by the Cyprus Parliament to enable the registration of informal buildings in Cyprus, concerning mainly buildings that could not easily obtain the final permits. Developers as well as interested owners were demanded to bring in all the necessary documentation, and proceed with the registration of such buildings, in a more efficient and less bureaucratic way. In the meantime, the Department of Lands and Surveys, took part in the research for such issues by examining all major contract of sales registered in the Department, and whose buildings remain without a title. LIS / CILIS Digital Procedures and Planning The Department of Lands and Surveys proceeds with several actions regarding planning issues and development inside its Land Information System by: The digitization of all planning zones plan into its DCDB and SDB databases Mass updating of this information inside the Legal / Fiscal Database Fiscal Data Capture Collection of Property Data on the field Buildings Photo Capturing on the field Close cooperation with Municipalities and Local Authorities The Department of Lands and Surveys in an effort to hold the correct fiscal data inside its LIS, has decided to digitize all the major planning zones plans and embed them as a new layer inside the Geographical Database of the Department. The work was done by an external contractor who has proceeded to digitize more than 5000

9 plans. These plans were returned to the Department, and the Department has embarked in a major project of registering this data inside both the GIS as well as the Fiscal Database of the Land Information System. The work done includes three major steps. Correction of the digitization by the contractor Snapping and correcting of the planning zones on top of the DCDB and SDB layers Mass updating of the data inside the Fiscal Database using Oracle forms. Nearly 60% of all plans have been uploaded inside the GIS layer so far and nearly 25% have been mass updated inside the Fiscal Database, where every unique parcel in the system has a planning zone attached to it. This means faster decision making by the valuers in the Department, better information to the general public and definitely a more efficient decision making inside both the DLS as well as the T.P.H departments. It should be highly noted here that all the above information may be easily distributed through the web when the decision is taken by our management team. Limassol Local Plan Planning Zones Correction A major project inside the Department is the Fiscal Data Capture on the field. With this procedure, all buildings on the island are being recorded, whether formal or informal, however, they are not registered inside our Legal Database unless they posses a final permit. Data however, is registered only for Fiscal and Taxation purposes (Mass Valuation) inside our LIS, and 15% of the whole Cyprus has been collected so far. For this project, DLS has a very close cooperation with local authorities and municipalities who inform us month by month regarding new building permits issued on the island. Along with the above, DLS employees on the field carry digital cameras and take pictures of both formal and informal buildings on the island, registering these

10 photos inside our LIS and GIS systems. Nearly up to 10,000 pictures have been collected so far, and a major study is now being done to include cyclorama 360 degree pictures inside our Database. With all of the above inside our LIS database, property analysis is being enhanced, and a lot of strategic decision making by both departments is done using this data. Recently, in an effort to assist the VAT department set its European VAT base, formal and informal buildings sales were exported for analysis from our LIS. Future Expectations and Proposals As a general remark, we have to note that digital data may be more easily administered and distributed to the public, than manual data. Therefore, it is important to proceed with all the e-government procedures we have now under pilot study in our department, in the meantime, taking all necessary actions, both organisationally as well as technically to proceed with this shift in processes. We strongly believe that unless a Department is digital, it can not open its doors efficiently to the public. We believe that Cadastre itself won t solve the problem and that we need to urgently promote our e-land Administration Infrastructure, making our processes more transparent, and promote a fast and efficient service to our clients, as well as in all Departments of the Cyprus Government. We are also currently examining issues such as Cadastre 2014, as appointed by the FIG Commission. During the past several decades researchers have seen many studies of the impacts of information technology (IT) in business organizations, and comparatively fewer studies in government organisations. The concerns of researchers have been largely the same across both sectors effects on efficiency and effectiveness, changes to organizational structure, and impacts on work. Studies in government, however, have been unique in their concern with whether IT is a catalyst or instrument of administrative reform. Inside DLS we define administrative reform as efforts to bring about dramatic change or transformation in government such as a more responsive administrative structure, greater rationality and efficiency, or better service delivery to citizens. Towards these ends, governments historically have undertaken structural reforms such as city manager government, budget reforms such as the executive, performance and program budgets, financial reforms such as unified accounting, personnel reforms such as merit-based employment and pay, and many others. Computing has been viewed as an instrument of such reforms, and also as a reform instrument per se. The era of E-Government, which can be defined as the use of IT within government to achieve more efficient operations, better quality of service and easy public access to government information and services, is now underway throughout the world and Cyprus. The IT world that surrounds public administration in Cyprus has changed remarkably. Technology diffusion within the society has been pervasive, with personal computers and the Internet extending to the majority of Cypriot households. Investment in information technology at all government levels has increased, new capabilities are more diffused throughout government agencies, technical

11 expertise is stronger and also more widely spread, and governments have successfully institutionalized modern principles for management of IT. If anything, there should be greater "readiness" for administrative reform from IT than ever before. Technically, the authors believe that DLS is now ready to make the big step forward, and that is, proceed with revolutionary changes and promote e-government in its procedures. All of the afore-mentioned are summed up in the following goals: Embed the e-government organisation paradigm inside DLS; Examine the transformation of DLS and other related public sector s internal and external relationships through Internet enabled operations and ICT to optimize government services delivery, constituency participation and internal government processes; Fundamentally re-think of how technology can improve the very process of government and DLS; Transform the design and delivery of government services and relationship with citizens (clients); Embrace new approaches, which will allow greater flexibility to respond to government priorities and demands for new services; Establish a series of new actions to facilitate a smoother roll-out from research on e-government to actual piloting and deployment of such procedures inside DLS; Promote voluntary and multilateral commitments to priorities for the deployment of on-line services; Embrace in Europe s concept of an Information Society for all ; Establish DLS as the central property data provider in Cyprus; Consider the issues of the FIG Commission regarding the Cadastre of 2014, and how it maybe integrated with the Land Information System of DLS; Improve the Department s administrative transparency; Consider the effects of an One-Stop-Government, with the major central role in the process given to the Department of Lands and Surveys; Streamline processes and re-consider a flatter organisational structure inside DLS; Move from basic supply of information to online transactions and then to more complex multi-agency transactions and data integration (open registers); Reorganize all the back office operations and gradually dismiss manual bureaucratic procedures; Achieve greater efficiency and a higher benefit/cost ratio. Deliver services that are responsive to people s needs; Enhance closer citizen engagement in policy formulation and processes. All of the above can place DLS in a leading position throughout Europe and enable it undertake a new important role as a service and data provider that will promote efficiency, effectiveness and cost-savings.