> TOOLKIT VERSION 2.0

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1 MODULE 1 > TOOLKIT V LOCAL GOVERNMENT SPATIAL > TOOLKIT VERSION 2.0 Building capacity for integrated spatial information management solutions JULY 2007 MODULE 1 Spatial information management in local government A joint initiative of the Australian Local Government Association and ANZLIC the Spatial Information Council AUSTRALIAN LOCAL GOVERNMENT ASSOCIATION PAGE 41

2 > TOOLKIT V 2.0 MODULE 1 Contents Concise guide for technical managers Module 1: Spatial information management in local government > MODULE 1 Spatial information management in local government Guide for managers Overview of the role of spatial data in local government Spatial information management capability framework in local government > This is Module 1 to the LOCAL GOVERNMENT SPATIAL INFORMATION MANAGEMENT TOOLKIT. Ten detailed modules and essential preliminary matter to the Toolkit are available via: and > Please note in particular the information detailed in the prelims regarding the use, resale and reproduction of the Toolkit. Users are directed to the prelims of the Toolkit for essential information, including that addressing copyright and liability matters, and the ISBN. 1.3 Spatial information management in local government Introduction Issues Need for integrated information management and a data infrastructure Components of an integrated management solution and spatial data infrastructure Management and organisation framework Training and expertise Information policy Partnerships Additional support Material on spatial data infrastructures and policies Material on capability-raising frameworks Acronyms Module 2: An introduction to spatial information systems Module 3: Data management principles Module 4: Spatial data priorities, standards and compliance Module 5: Finding and getting hold of data Module 6: Project management and justification Module 7: Guidelines for selecting spatial information system software and hardware Module 8: Raising capability for using spatial information Module 9: Map production guidelines Module 10: Working together PAGE 42

3 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 Guide for managers Context Module 1: Spatial information management in local government provides a framework to assist local government to obtain full value from investments in the collection, management and use of spatial data. One of the prerequisites for spatial information management is the establishment and maintenance of a database of relevant information in digital format. Access to reliable and up-to-date information reduces uncertainty in planning and management by helping to identify, model and analyse situations and issues. Strategies to overcome such issues may then be prepared and implemented, with the impacts monitored as part of an overall system. The value of the information and the effectiveness of the decision-making and planning processes are very closely related to the quality and completeness of the information and the manner in which it is made available. In this respect, data access, management, integration, analysis and communication are key components of effective spatial information management. Successful projects involving spatial information management have generally adopted an integrated information management solution. Integrated solutions combine leadership, people, technology, applications and data into a framework that ensures tools and procedures are in place to maintain and transform data into information products that support core business operations and decision-making processes. Increasingly, councils are using spatial data as a core part of their business operations, and this often involves gaining access to data, developing new data, and/or processing existing data in different ways. Data changed or created as a result of these activities should then become part of the overall local government database of spatial information and, where appropriate, be made available to neighbouring councils and or the broader community. The Local Government Spatial Information Management Toolkit is being produced under the joint sponsorship of the Australian Local Government Association (ALGA) and ANZLIC as part of a strategy aimed at building capacity to implement spatial information management solutions. The Toolkit will assist local government to obtain full value from investments in the collection, management and use of spatial data. The Toolkit provides a resource that: > assists in building capacity at local levels to manage, use and share spatial data and information more effectively > increases the awareness, understanding and skills of staff responsible for data and information management in local government projects > facilitates the development and adoption of internationally accepted standards and guidelines for information management and thereby promotes leading practice in information management > gives participants in local government projects access to practical information management tools to reduce set up costs and duplication of effort > supports the development of community networks through open and efficient sharing of information resources and knowledge, and assists the establishment of information loops between regional, state/territory and national levels > ensures the sustainable management of data used or created in projects > allows others to fully exploit the information generated from local government projects. PAGE 43

4 > TOOLKIT V 2.0 MODULE 1 It is acknowledged that each state and territory has its own initiatives related to data and information management, including governance guidelines and protocols. The intent of this guideline is to provide background information on spatial information management programs, emphasising the shift in focus of funding programs to a local government level, and to provide an introduction to information management. Actions Managers should aim to develop an integrated management solution in which the acquisition, processing and dissemination of data and information are carried out within a collaborative framework. This requires the establishment of a spatial data infrastructure, involving the creation of guidelines, standards and procedures within a framework that is supported by a scientifically based and technically competent distributed group of data custodians and related agencies. The Australian Government and the state and territory governments are currently involved in the development of the Australian Spatial Data Infrastructure (ASDI). Local government managers should facilitate the development and implementation of related data policies at a local level, based on leading practice principles such as those outlined in the ANZLIC Policy Statement on Spatial Data Management. Key features include: > creation of an easily accessible, distributed data network to manage and disseminate data collected as part of project and other activities in support of corporate objectives > development of core datasets as standard or baseline products, and a range of other products and services as needed to support economic, ecological and social development > provision of leading practice quality assurance mechanisms and procedures to create validated, well-documented datasets to meet priority information needs > establishment of partnerships with industry, government and others (e.g. educational institutions) to develop skills and maximise use > where possible, avoidance of duplication in data capture and expenditure on system development > archiving of data to ensure availability for multiple use and to safeguard them for future generations. Achievement of these principles requires adoption of leading practice in data and information management for data collectors, data owners, data custodians, and groups or agencies that generate information. This module is designed to provide a brief overview to assist councils in the development of data and information management strategies, including the management of spatial information resources. More detailed information related to program development and data management is presented in other modules of the Toolkit. Acknowledgments This module sources material produced by ALGA, the Australian Government Information Management Office (AGIMO, formerly the National Office for the Information Economy), ANZLIC and Spatial Knowledge Engineering, Incorporated. These sources are duly acknowledged. PAGE 44

5 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 Guide to symbols The following symbols are used throughout the Toolkit to draw attention to important issues and information. Information of which readers should take particular note Leading practice information Tips for readers, based on experience and aimed at saving time and other resources Caution readers should take particular care, or the issue may be complex Capability raising shows a signpost to a higher capability level Bold Text highlights an important issue Boxed Text highlights issues specifically related to ANZLIC or ALGA A list of several on-line spatial information system, GIS, cartographic, data and IT glossaries and dictionaries is provided at An additional online glossary for definitions of many current IT-related words is available at Overview of the role of spatial data in local government There are some 683 local government bodies of various types in Australia. These councils are represented by ALGA ( the national voice of local government. The councils display high diversity. For example, both Walkerville Town Council in South Australia and George Town Council in Tasmania have about 6,700 residents within their boundaries, but the areas covered by the councils are 3 square kilometres and 649 square kilometres, respectively. Warrumbungle Shire Council in New South Wales has some 7,000 residents within its 7,674 square kilometre area. 4 4 Crown Content, The Australian Local Government Guide. Crown Content, North Melbourne. PAGE 45

6 > TOOLKIT V 2.0 MODULE 1 Each council is focused on providing quality and efficient services to its local community. Each council faces a unique set of circumstances, resulting in widely differing management responses to that shared focus. The diversity of councils is marked by variations in: > geographic size > population > range and scale of functions > fiscal position (including revenue-raising capacity), resources and skills base > physical, economic, social and cultural environments of local government areas > attitudes and aspirations of local communities > structures of power and influence within local communities and the extent to which elected representatives reflect a broad range of opinion > state or territory legislative frameworks within which councils operate, including voting rights and electoral systems. The Toolkit provides information that will be valuable to all councils. Larger, better resourced councils are catered for, as are the smaller councils that make up more than 50% of councils throughout the country. 5 The Toolkit examines issues common to all councils regardless of their land areas, populations, rate bases or locations. All councils use spatial information in their operations. For example: > spatial information is used to manage existing roads through maps, maintenance plans and tracking the location of plant and equipment > local government planners use spatial information every day in town planning schemes or the processing of development applications. The challenge facing local government is not whether to use spatial data, but how best to use them to enhance community services. The Local Government Spatial Information Management Toolkit approaches the diversity in councils through four mechanisms: > first, the Toolkit focuses at a level of universal principles of best practice for spatial information management, embedded within an overall approach to best-practice project and information system management > second, the Toolkit focuses at a strategic level, ensuring commonality between councils while using specific examples from individual councils to illustrate particular issues > third, the Toolkit supports the emerging community of practice among those working on spatial information in local government > finally, the Toolkit supports the ongoing development of spatial information management services for councils by state and territory local government associations. It is important to stress that the spatial information management systems currently being developed under a range of Australian Government initiatives will continue to change the use of spatial information in local government. Each state or territory in Australia has understandably taken a slightly different approach to the development of geographic information systems (GIS) to support spatial information management, 5 The median population of local government areas in Australia was 7,119 at June 2005 (Commonwealth of Australia, 2006, Local Government National Report. Department of Transport and Regional Services, Canberra). PAGE 46

7 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 tailored to the needs of councils within its jurisdiction. Nevertheless, the Australian Government s Networking the Nation initiatives have produced similar outcomes in all jurisdictions, including: > vastly greater use of spatial information by councils that are directly involved (in many cases, these councils are in remote and rural areas where previous access to spatial mapping technologies has been restricted) > flow-on effects to councils not directly involved, through a greater awareness of spatial information in the local government community in general and of the potential for working together with neighbouring councils on shared issues > greater pressure on spatial information providers, including the Australian Government and state or territory governments, to provide access to accurate and timely information > improved access to data and knowledge networks. These issues are discussed in the following sections. 1.2 Spatial information management capability framework in local government There is a wide range of capabilities and resourcing in spatial information management in the local government sector. This variety invariably relates to factors such as size, complexity, location, funding, individual and organisational capacity, and community expectations, as outlined above. The level of integration of spatial information into the daily operations of local government is increasing. In addition, new opportunities are constantly arising for councils, due to the increased availability of spatial information systems and services. In particular, the collaborative efforts of local government associations to develop shared systems, services and standards on behalf of their members, and to develop local government capability in spatial information management systems, provide a valued resource. In addition, professional special interest groups and similar organisations can provide valuable support to council staff engaged in spatial information management. Crucially, as local government s use of spatial information increases, so does its requirement to understand spatial information standards and the ways spatial systems integrate with other information systems and link to the overall direction for improvement in council services to the community. However, the development and implementation of such integration standards should not be divorced from the operational imperatives of local government or the needs of the community at large. Within the context of the need for ongoing improvements in the capacity of councils for managing spatial information (and regardless of current capacity), it is important to consider the spectrum of spatial information management capability in local government. The concept of capability spectrums is well established in the information technology (IT) industry and in quality management and allied disciplines across all industry sectors. A useful introductory resource for capability spectrums from the software engineering field can be found at the website of the Carnegie Mellon University Software Engineering Institute at Given the range of capability and the focus on uniformly accessible services, the challenge for councils in Australia is to define an approach to addressing the rate and PAGE 47

8 > TOOLKIT V 2.0 MODULE 1 scale of technological change to be taken by councils individually, or collectively with neighbours. Such change management requires a clear focus on current, required and emerging capacities, as well as sound practice in promoting, developing and embracing new ways of work. Practices involving areas such as change management, business process improvement, quality management and customer service are all potential drivers for the increased use and importance of spatial information. Figure 1.1 illustrates the juncture points between process integration and service quality, which combine to define the requirements for broader information management and integration work. This is taken from resources available through the well-known Six Sigma process improvement methods, available at FIGURE 1.1 Aspects critical to capability raising in local government spatial information systems ( Building from the capability model commonly used in the IT industry, a simple fivestage maturity model is introduced here for spatial information management in local government. This model views current capability as a starting point for improvement, rather than a problem or deficit. 6 The capability raising model allows all councils, regardless of their current capabilities, to consider what is needed to improve capacity and so move forward on the capability spectrum. The five capability levels are shown in Table Within this capability raising model, there is also a level zero that implies no capacity. As all councils in Australia use spatial information, even if this is just the use of hard copy maps, there are no councils at level zero. PAGE 48

9 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 TABLE 1.1 A capability framework for spatial information management in local government Capability Name Description level 1 Individual capabilities One or two projects or a business process are being developed by individual staff. 2 Managed individual The projects of individuals are recognised by capability the local government and are being managed, standards are in place, and there are linkages to some business processes and procedures. Training resources are allocated, responsibilities have been assigned and evaluations are taking place. 3 Organisational capability All local government business processes are defined and managed through program management of all projects. Linkage of all business processes to defined customer needs exists. Internal benchmarking is occurring and compares spatial information management with other business activities. 4 Quantitatively managed Quantified measures of process efficiency organisation capability across the local government exist. Spatial information management process, standards, training and support are measured quantitatively. 5 Optimising A continuous improvement process is in place, based on quantified measures of process efficiency and a range of management processes to constantly improve measured performance. It is useful to consider where the council is currently placed on this capability spectrum, and to identify where it intends to go (and how to get there). The remaining modules in this Toolkit are designed to support the council in that journey. For some councils, raising capability by one or two levels may meet requirements. For others, a strategic plan for improvement driving towards level 5 may be appropriate. The focus should be on moving forward either through the relevant local government association or some other collaborative arrangement to develop shared GIS services, or through the council s GIS system implementation. PAGE 49

10 > TOOLKIT V 2.0 MODULE Spatial information management in local government Introduction The efficiency and effectiveness of councils will be enhanced by the adoption and use of appropriate IT. The use of IT must be supported by policies and practices that view data and information as long-term assets, requiring dedicated management and coordination, to produce increased efficiency and effectiveness in business operations. This means being able to deliver the right information to decision makers in the correct format and in a timely fashion. In some instances, there may be a barrier between what management and staff need and what they actually have. They need easy access to relevant information, tools that support the use of the data, understanding of the data through standards and metadata, clear priorities, and training in the use of the technologies. What they may encounter are highly dispersed data that are not easily accessible or do not conform to a known standard (or perhaps to any standard). As a consequence: > time, effort and money may be wasted in duplicating effort in data collection, management and analysis > results may not be transferable or easily shared > decisions may be difficult to communicate, often culminating in management having difficulty assigning priorities and resources. The goal of information systems is to convert data into information. It is the transformation of data to information that provides knowledge, and an ability to make informed decisions to improve management. This concept is illustrated in Figure 1.2. FIGURE 1.2 The progression of data into knowledge PAGE 50

11 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 The elevation of capability to a level where information, intelligence and knowledge can flow within the organisation and promote decision support functions is a key to improving organisational efficiency and effectiveness. Spatial information is a key component of local government business and should be seen as an integral component in the pyramid. Data are inputs to the information creation process. For example, records of daily rainfall over long periods can be used to produce a monthly mean average for a particular location Issues While the benefits of having access to and being able to use data and information may be well understood and accepted, the reality for some councils is that: > the technology is not accessible because it is too complicated to use and too expensive to acquire and maintain > data are incomplete and not easily accessible > data are not up-to-date and often lack any documentation on their accuracy and reliability > only a few elite technology gurus have the know-how and tools to analyse and synthesise information. Today s spatial information and web technologies can enable sophisticated analysis, sharing, publishing and access. However, in some cases, money and time may be spent with few results. There are many reasons why implementations might fail, including: > lack of leadership or senior management support > failure to align the system to business needs > failure to identify the full implementation cost, perhaps focusing on hardware and software costs, while the costs of data, training and applications development are missed or underestimated > insufficient or inappropriate expertise and experience in the implementation team > reliance on experts and technology to dictate the business processes, instead of facilitating and supporting the council s information needs > failure to understand the scope of the system beyond the software and hardware components. Table 1.2 illustrates some of the issues associated with integrated data management. PAGE 51

12 > TOOLKIT V 2.0 MODULE 1 TABLE 1.2 Integrated data management solutions Without an integrated solution Data are dispersed within and among organisations Data are collected and stored according to different standards Data are collected for a single purpose Data are poorly documented and publicised Management cannot set up information policies for access and use of data Focus on high-end solutions for specialists This results in difficulty accessing data duplication of data resources incompatibility among datasets of similar themes and subject matter within and among organisations large databases with limited usefulness difficulties integrating data from other locations or with other themes data not being compatible with some computer technology standards documentation may be poorly supervised increased data management and transfer costs a fragmented database gaps in coverage or overlapping coverage increased costs lost opportunity and lost investment data life may be seen only in the context of the originating purpose, leading to poor data management and archiving limited or no availability to potential users data collection duplication where data already exist little metadata multiple owners and a silo mentality that is not conducive to sharing or partnership difficulty in setting priorities for data management and systems development information is not treated as a corporate resource (unlike financial resources and human resources) lost opportunities in matching information and knowledge flows to the organisational information structures most management and staff not having the simple tools they require to access and use the information focus on advanced analysis, not on information presentation for decision support, monitoring or evaluation less emphasis on the most needed and often most simple and cheaper products more information on high-end, time-consuming and expensive products with narrow fields of use It is against this background that ALGA and ANZLIC have produced this Toolkit. The Toolkit supports development of integrated data and information management solutions by providing an integrated set of practical guidelines suitable for immediate use by Australian local government. PAGE 52

13 MODULE 1 > TOOLKIT V Need for integrated information management and a data infrastructure An integrated information management solution is needed for two key reasons: > management capability > value and cost. The solution will successfully combine leadership, people, computer hardware and software applications and data into a framework or infrastructure that ensures the appropriate tools and rules are in place to maintain data and turn them into useful information products to support operations and decision making (see Figure 1.3). FIGURE 1.3 Effective tools and technologies and integrated data management solutions PAGE 53

14 > TOOLKIT V 2.0 MODULE 1 Management capability Public and private sector policy, planning, decision making and action all rely on good data and supporting systems and procedures. If the data, systems and procedures are not in place, management capability and economic growth do not reach their maximum potential. An integrated solution ensures that good data are accessible and that the appropriate applications and information are in the hands of the people who need them. An integrated solution also provides opportunities to do new things, and to improve the way current activities are done, in ways currently not foreseen or possible. Value and cost Data, particularly spatial data, can be expensive to collect, manage and maintain. The integrated system s framework and mechanisms enable and promote the sharing and distribution of data, thus reducing costs and increasing their value. An integrated system also promotes the development and acceptance of standards, through the use of common data, systems and a participatory information management structure. These also reduce costs and increase the data s value. Develop formal measures to demonstrate the contribution of spatial information to business process efficiency. Use external benchmarking as a way to gain a deeper understanding of the way the council uses spatial information and to refine the measuring techniques used. Develop the spatial information management plan, including all resource needs: human resources, budget allocations and required technologies. The plan should be closely aligned to the business drivers, and be developed with ongoing governance in mind. 1.4 Components of an integrated management solution and spatial data infrastructure As mentioned above, several elements are involved in the development of an integrated information management solution and the development of a spatial data infrastructure (SDI) to assist spatial information management within local government. It should be noted that each jurisdiction normally has its own specific guidelines, policies and protocols, leading to unique solutions that reflect both the jurisdictional requirements and the diversity of councils (see Section 1.1). ANZLIC acknowledges that the Australian Spatial Data Infrastructure is more than an aggregation of initiatives in many individual jurisdictions and recognises the importance of the engagement of all stakeholders. Local government is a key stakeholder. PAGE 54

15 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 It is beneficial to explore and understand the drivers for and barriers to effective SDI management. These will influence the SDI adopted by a council. Generalised drivers and barriers identified at a national level include the following. 7 > drivers maximising the economic, social and environmental benefits from investment in spatially referenced information facilitating industry development rising community expectations for online services globalisation technology changing societal priorities environmental degradation and natural resource depletion. > barriers: immature institutional arrangements and user provider relationships inconsistencies in the availability and quality of spatially referenced data inconsistent policies for access to and use of spatially referenced data incomplete knowledge about the availability and quality of existing spatially referenced data lack of leading practice in the utilisation of enabling technologies. The latest information on the development of the Australian Spatial Data Infrastructure (ASDI) is available online from the ANZLIC website at A copy of the Spatial Information Industry Action Agenda : Positioning for Growth is available for download from the ANZLIC website at Additional information is included in Section 1.5 of this module. A guide to assist councils to work towards an integrated approach to spatial information management follows Management and organisation framework Leadership The development of a data infrastructure that meets all local government requirements requires active leadership to ensure that activities remain coordinated and focused. An overarching vision or goal to which all participants subscribe is important. The designation of a leader, with dedicated resources and able to provide coordination, is a key ingredient to expedite development. An additional leadership role is to maintain enthusiasm and continuously promote the vision and goals. The leader may promote the data infrastructure upwards to corporate levels, and outwards to users. Ultimately, all are stakeholders in the SDI. In this sense, leaders often act as champions to ensure success. 7 Taken from 12 March PAGE 55

16 > TOOLKIT V 2.0 MODULE 1 Leadership is especially important in the initial stages of implementing an integrated management solution within councils. Sample organisational models/responses There are several possible organisational models for implementing an integrated management solution within the council or between neighbouring councils. These models can all contribute to the ASDI. However, often one is often more suitable than another, based on specific circumstances, mandates or drivers. These are illustrated in Figure 1.4 and discussed briefly below. FIGURE 1.4 Sample organisational models > partnership model typically business driven relies on and provides a supportive policy environment for data access and sharing. > data utility model requires authority by government to create and maintain framework data can produce profit and enhanced services. > committee model multi-department/organisational membership, with staff undertaking specific roles of implementation. > non-profit corporation or body model separate from government, with broad participation on board of directors frequently has some form of enacting legislation. > government agency model responsibilities given to lead government agencies to enact. PAGE 56

17 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 Steering committee The adoption of an integrated management solution and the establishment of a data infrastructure often involve the creation of organisational responses, such as a data utility and policy/standards group. To be effective, some formal arrangement is required (in the form of a steering committee) to oversee implementation and provide vision, direction and approval of resource allocation. In general, such a committee has overall direction authority and is the key body in ensuring that products and services reflect the expectations and needs of the organisations and user groups they serve. A steering committee may be composed of key stakeholders for the SDI. Typical roles for such a committee involve the following: > Partnership development and policy framework. The steering committee is responsible for driving the development of data-sharing and co-maintenance policies/directions, and its membership should reflect any implementation partnerships. > Communications/participation. The role of steering committee members is to assume responsibility for championing the adoption and use of the system components within and beyond their organisations or groups. They should also ensure that their organisations or agencies participate in the development of communications materials in support of the integrated management solution. > Data standards. The steering committee should be the responsible approving authority for data standards used by the system/partnership and should ratify any data standards processes. > System requirement priorities. The steering committee should set priorities for new system requirements and be responsible for determining any new requirements. > Data collection and maintenance priorities. The steering committee should assist in ratifying new business processes that maintain the framework databases (for example, sharing and incorporation of information gathered by agencies to support their ongoing work). It should also be responsible for setting priorities related to data capture, cleaning and maintenance. The committee should also be aware of and adhere to overarching policies that are part of wider initiatives at the Australian Government and state or territory government levels. > Training. The steering committee should also participate in the determination of training needs to build capacity within the various partners to more fully benefit from the overall implementation of the system Training and expertise Training and development The development of an integrated management solution and data infrastructure must be accompanied by a training strategy to build and sustain capacity. One of the key lessons learnt from past initiatives is that not enough attention has been given to capacity building and the development of corporate knowledge bases (and the use of simple free viewing tools) that enable data and information to be readily available for all partners and stakeholders. 8 8 An example of an effective approach to training and development is provided by the online materials provided by the City of Swan, Western Australia. See PAGE 57

18 > TOOLKIT V 2.0 MODULE 1 The development of an inventory of skills among key staff involved in spatial information management is one step in determining training or educational priorities. In this regard, the use of a questionnaire may assist in rapidly obtaining information (see Module 8 for further information). This can then form the basis of a gap analysis that can guide the training strategy. Other key elements in planning a training strategy include: > identification of skills and training needs required to implement an integrated management solution > identification of existing external skill alternatives, such as continuing professional development courses > identification of requirements for specific capacity in spatial information system concepts and software training, as well as training in application development, system and network administration, database development and maintenance, and program management > development of a suite of standard and custom products and services, which often improves efficiency and effectiveness. Further information on training and recruitment for acquiring skills in spatial information management is provided in Module 8: Raising capability for using spatial information. Spatial information systems expertise Obtaining high-quality professional spatial information systems expertise is often difficult and relatively expensive in both city and regional locations. In many situations, it is not practicable to maintain full-time spatial information systems professionals within an organisation. The introduction of standards (e.g. file-naming conventions, metadata and protocols for data sharing) and simple visualisation tools is making it much easier for people to access and use spatial information. As a result, casual users familiar with basic desktop computer programs can now undertake tasks such as displaying spatial information and making a map Information policy Information access policy considerations Timely access to accurate and up-to-date data is critical to councils. Many people involved in the development of spatial information systems and database activities have experience of being unable to access data. In many cases, this results from the absence of policy relating to the provision of data to other users or an explicit restriction on providing the dataset. Several key information policy issues need to be addressed. These are discussed below. Cost Consideration needs to be given to the cost of providing data versus the cost of providing access to data. In some cases, users only want access to view data, as opposed to obtaining a copy of the dataset in a format that can then be used and manipulated within spatial information systems or database programs. Data sought for viewing only are often easily accessed using the internet. PAGE 58

19 MODULE 1 > TOOLKIT V 2.0 Cost can be a barrier to the user in acquiring datasets, as well as a barrier to the provider in distributing data in the format or to the extent requested. In many situations, a case exists for distributing, at little or no cost, data that have been captured using public funding. Higher prices for data are likely to limit distribution and access. In some situations, however, the absence of a homogeneous policy for cost recovery by public agencies can inhibit the flow of data and information even more. Format Format issues are of particular concern, including the format in which the data are stored (e.g. a satellite image may be stored in a number of different image file formats) and the media on which the data are stored (e.g. CD-ROM or DVD). It should also be noted that technology can make formats obsolete in a very short time (e.g. the 3 2" 1 floppy disk was very common a number of years ago but is hardly used today). Each media type has a useful lifespan before it breaks down. This may be influenced by factors such as temperature, humidity and light exposure. Media should be archived according to leading practice guidelines. Because of increasing spatial interoperability functionality, most GIS can access data in multiple formats, and some vendor-specific formats (e.g. shapefiles) are commonly used and read by different GIS software suites. System design System design must consider how to provide access to data, especially where some records may contain elements of information that need to have restricted distribution. Copyright Copyright and intellectual property need to be addressed as part of an information access policy. It should be noted that policies for copyright and intellectual property rights can be complex to develop and must be carefully considered, with support from senior managers and/or legal sections of the council. (See ANZLIC publications on these subjects at Privacy When collecting data, it is important to clarify what is private and what is to be made available in the public domain. In some cases specific data, such as detailed property information or development application histories, may not be available to the public, while a map (or spatial information system layer) of the lot boundaries may be made freely available. Privacy legislation normally requires that personal information be made available to the individual concerned, while it is withheld from others. Clear protocols are needed for the management of personal information. The following steps should guide the collection of new data. 1 Justify the need for collection of the personal information 2 Provide notification of any secondary use of such information. 3 Maintain an index of all databases containing personal information. 4 Provide individuals with the opportunity to verify the accuracy of the information, including a means by which the individual can have inaccuracies dealt with. ANZLIC s Privacy Guidelines for Spatial Information are available on the ANZLIC website at PAGE 59

20 > TOOLKIT V 2.0 MODULE 1 Liability Liability refers to how protected an organisation is from legal recourse. This is very important in the area of data and information management, especially where damage could be caused to an individual or organisation as a result of misuse or inaccuracies in the data. Liability is often dealt with by using end-user agreements and licences. As a guide, accuracy should always be reflected in the metadata. This is one reason why metadata are very important when data are made available outside their source organisation. Summary of current ANZLIC information management policies ANZLIC and ALGA believe that the nation is best served by data management policies that encourage and facilitate the use and integration of data, and that price should not be an impediment to the transfer of data. Where possible, prices should be established at the lowest level (i.e. free or the cost of transfer) that encourages efficient and effective use, avoids duplication and overlap in data collection and maintenance, and promotes data integration. The ANZLIC website has a number of guidelines suitable for use as templates in the development of policies and protocols. ANZLIC has developed a suite of interrelated policies and guidelines to assist organisations to achieve best practice in spatial data management. Available at they include: > Guidelines for Custodianship of Spatial Data > Policy Statement on Spatial Data Management > Metadata protocol and standard metadata profile > Guiding Principles for Spatial Data Access and Pricing Policy > Privacy Guidelines for Spatial Information > Access to Sensitive Spatial Data. More information about ANZLIC s policies and guidelines is available on the ANZLIC website at ALGA has developed a guide to knowledge management and information architecture. The guide provides a basis for leading practice in information management, systems integration and interoperability. For further information, refer to More information about ALGA s policies and guidelines is available on the ALGA website at PAGE 60

21 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V Partnerships The development of an integrated management solution and data infrastructure presents many opportunities for partnerships. Information access enables groups and partners to do things in new ways, provide new services and information products, and reduce their reliance on traditional approaches. A single council may not have the resources, skills and knowledge required to undertake the development of all aspects of a data infrastructure and implementation of an integrated management solution. Having organisations and partners working together from the outset is vital to ensure that activities occur in a way that supports all the partners in their use of data. It also means that a greater amount and wider range of resources are incorporated in the development process. In this respect, the involvement of both public and private partners, as well as academic/educational groups and individual experts, in a consortium approach often yields the best results. There is a range of mechanisms for the development of partnerships, as outlined in Module 6: Project management and justification. Module 6 outlines the benefits found in the United States from working with all levels of government on shared spatial information issues and problems. Module 10: Working together outlines potential approaches to developing partnerships with other councils and/or private partners in spatial information management. 1.5 Additional support Considerable resource material related to information management, the development of SDIs and the establishment of enterprise architecture frameworks is available on the web. The following are selected examples Material on spatial data infrastructures and policies General resource material ANZLIC policies Australian Spatial Data Infrastructure Global Spatial Data Infrastructure US Federal Geographic Data Committee Survey of national and regional spatial data infrastructure activities around the globe GSDI Cookbook or PAGE 61

22 > TOOLKIT V 2.0 MODULE 1 State and territory SDI sites Australian Capital Territory New South Wales Northern Territory Queensland South Australia Tasmania Victoria Western Australia Material on capability-raising frameworks Australian Public Service Commission website at Provides links to several of the Commission s key publications on building organisational capability. Carnegie Mellon University Software Engineering Institute website at Six Sigma process improvement methodology support website at PAGE 62

23 MODULE 1 LOCAL GOVERNMENT SPATIAL > TOOLKIT V 2.0 Acronyms ACRES Australian Centre for Remote Sensing ADAC Asset Design and As Constructed AGD Australian Geodetic Datum ALGA Australian Local Government Association ANZLIC ANZLIC the Spatial Information Council for Australia and New Zealand ASDD Australian Spatial Data Directory ASDI Australian Spatial Data Infrastructure AS/NZS Australian Standard/New Zealand Standard CAD computer assisted design, computer-aided drafting CPU central processing unit DSDB detail survey database GDA94 Geocentric Datum of Australia 1994 GIS geographic information systems GML Geography Markup Language, Generalised Markup Language GPS global positioning system GSDI Global Spatial Data Infrastructure GUI graphical user interface HTTP Hypertext Transfer Protocol ICT information and communications technology INCIS Integrated National Crime Information System (New Zealand) ISO International Organization for Standardization IT information technology MGA Map Grid of Australia OGC Open Geospatial Consortium OGC-A Open Geospatial Consortium Australasia PRINCE Projects IN Controlled Environments RCSC Regional Collaboration Steering Committee (Queensland) RFP Request for Proposal RIP raster image processor ROC regional organisation of councils SDE spatial database engine SDI spatial data infrastructure SEQ south east Queensland SIDP Spatial Interoperability Demonstrator Project PAGE 63