LO C A L G O V E R N M E N T S PAT I A L

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MODULE 1 > TOOLKIT V 2.0

1
LOCAL GOVERNMENT SPATIAL
INFORMATION MANAGEMENT

> TOOLKIT VERSION 2.0

Building capacity for integrated spatial

information management solutions

J U LY 2 0 0 7

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

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Contents
Concise guide for technical managers. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Module 1: Spatial information management in local government. . . . . . . . . . . . . . . . . . . . . . . . . . 41

> MODULE 1
Spatial information management in local government

Guide for managers. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

1.1 Overview of the role of spatial data in local government . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

1.2 Spatial information management capability framework in local government . . . . . . . . . . 47

1.3 Spatial information management in local government . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

1.3.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
1.3.2 Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
> This is Module 1 1.3.3 Need for integrated information management and a data infrastructure. . . . . . . 53
to the L O C A L
GOVERNMENT
1.4 Components of an integrated management solution and spatial data infrastructure . . . 54
S PAT I A L 1.4.1 Management and organisation framework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
I N F O R M AT I O N
1.4.2 Training and expertise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
MANAGEMENT
TOOLKIT. 1.4.3 Information policy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
Ten detailed modules and 1.4.4 Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
essential preliminary
matter to the Toolkit 1.5 Additional support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
are available via: 1.5.1 Material on spatial data infrastructures and policies . . . . . . . . . . . . . . . . . . . . . . . 61
[Link] and
[Link]. 1.5.2 Material on capability-raising frameworks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62

Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63
> Please note in particular
the information detailed
in the prelims regarding Module 2: An introduction to spatial information systems. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65
the use, resale and
reproduction of the Module 3: Data management principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
Toolkit. Module 4: Spatial data priorities, standards and compliance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
Module 5: Finding and getting hold of data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137
Module 6: Project management and justification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153
Users are directed to the
prelims of the Toolkit for Module 7: Guidelines for selecting spatial information system software and hardware . . . . . . . . 173
essential information,
including that addressing Module 8: Raising capability for using spatial information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 197
copyright and liability
matters, and the ISBN. Module 9: Map production guidelines . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 211
Module 10: Working together . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 225

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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.

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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.

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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 [Link]
An additional online glossary for definitions of many current IT-related words is
available at [Link]

1.1 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 ([Link] 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, 2005. The Australian Local Government Guide. Crown Content, North Melbourne.

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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).

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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 [Link]
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

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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 [Link]

FIGURE 1.1 Aspects critical to capability raising in local government spatial

information systems ([Link]

Building from the capability model commonly used in the IT industry, a simple five-
stage 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 1.1.

6 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.

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TA B L E 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.

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1.3 Spatial information management

in local government

1.3.1 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

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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.

1.3.2 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.

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TA B L E 1 . 2 Integrated data management solutions

Without an integrated This results in …

solution …

Data are dispersed within • difficulty accessing data

and among organisations • duplication of data resources
Data are collected and • incompatibility among datasets of similar themes
stored according to different and subject matter within and among organisations
standards • 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
Data are collected for • a fragmented database
a single purpose • 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
Data are poorly documented • limited or no availability to potential users
and publicised • data collection duplication where data already exist
• little metadata
Management cannot set up • multiple owners and a silo mentality that is not
information policies for conducive to sharing or partnership
access and use of data • difficulty in setting priorities for data management
and systems development
• information is not treated as a corporate resource
(unlike financial resources and human resources)
Focus on high-end solutions • lost opportunities in matching information and
for specialists 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.

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1.3.3 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

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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.

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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
[Link]
A copy of the Spatial Information Industry Action Agenda : Positioning for Growth is
available for download from the ANZLIC website at
[Link]
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.

1.4.1 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 [Link] 12 March 2007.

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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.

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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.

1.4.2 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 [Link]

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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.

1.4.3 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.

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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
1
noted that technology can make formats obsolete in a very short time (e.g. the 3 —2 "
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 [Link]

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 [Link]

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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
[Link] 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 [Link]

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
[Link]

More information about ALGA’s policies and guidelines is available on the ALGA
website at [Link]

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1.4.4 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.

1.5.1 Material on spatial data infrastructures and policies

General resource material
ANZLIC policies [Link]
Australian Spatial Data [Link]
Infrastructure
Global Spatial Data [Link]
Infrastructure
US Federal Geographic [Link]
Data Committee
Survey of national and [Link]
regional spatial data
infrastructure activities
around the globe
GSDI Cookbook [Link] or
[Link]

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State and territory SDI sites

Australian Capital [Link]
Territory
New South Wales [Link]
Northern Territory [Link]
Queensland [Link]
South Australia [Link]
Tasmania [Link]
Victoria [Link]
Western Australia [Link]

1.5.2 Material on capability-raising frameworks

Australian Public Service Commission website at
[Link] Provides links to several of the
Commission’s key publications on building organisational capability.
Carnegie Mellon University Software Engineering Institute website at
[Link]
Six Sigma process improvement methodology support website at
[Link]

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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

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SLIP Shared Land Information Platform (Western Australia)

SOAP Simple Object Access Protocol
URL Uniform Resource Locator (website address)
VROC voluntary regional organisation of councils
WALIS Western Australian Land Information System
W3C World Wide Web Consortium
XML Extensible Markup Language

N O T E : A list of several online spatial information system, GIS, cartographic, data and IT
glossaries and dictionaries is provided at [Link]
An additional online glossary for definitions of many current IT-related words is
available at [Link]

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