FORUM ON GOVERNMENT/INDUSTRY ROLES IN THE CREATION, MAINTENANCE AND DISTRIBUTION OF GEO-SPATIAL FRAMEWORK DATA
Purpose and Use of Report
This report provides highlights of the key observations and conclusions of a one-day consultation forum in July 2001, exploring government and industry sector interests and prospective roles in the development, updating and dissemination of “geo-spatial framework data” in Canada. These framework data will form the foundation upon which a wider range of geographical data sets and related applications that might subsequently be generated for public and private purposes.
The forum was sponsored by the GeoConnections Policy Node; one of several joint government/industry advisory and/or technical committees established under the GeoConnections initiative. The Policy Node seeks to develop and recommend implementation of policies that foster increased access to and use of geo-spatial data within the public and private sectors, in support of the broad objectives of the GeoConnections Management Board.
The Forum was held specifically in order to clarify policy issues pertaining to the creation, maintenance, and use of geo-spatial framework data in Canada, in support of one of the principal thrusts of the GeoConnections Initiative. More specifically, the outputs of the Forum will be used to refine directly the strategy for the development of geo-spatial framework data provided through the GeoConnections Initiative. Second, these discussions will form input to a government-wide Action Plan on Geo-spatial Data Policy, currently being developed for consideration by the Canadian Council on Geomatics, a federal/provincial government organization whose mandate is to assist in coordinating government-wide geo-spatial data activities.
The objectives of the Forum were to:
-explore ideas and options regarding the definition of and responsibilities for geospatial framework datasets that ought to be created, maintained and distributed as the core data foundation upon which other datasets and related applications might be developed; and
-identify
questions, challenges and implications arising from potential definitions
of framework data, and explore how these issues might be addressed and
potentially resolved.
Noting that investing in fundamental geospatial datasets and related support systems is akin to investing in other forms of public infrastructure such as roads and telecommunications networks, the forum began with a presentation on the role of public/private partnerships in the provision of societal infrastructure. The presentation was given by Neil Anderson, Co-Chair of the GeoConnections Technical Advisory Panel. Among other things, the presentation stressed the following:
-well-designed and well-maintained public infrastructure is vital for economic development, efficient delivery of government services, and the overall prosperity and well-being of society;
-given the complex, diverse and profound public and private interests in infrastructure, the most effective and equitable approaches to their development are normally via appropriate public/private partnerships, with a sharing of decision-making and investments;
-the definition of what constitutes essential public infrastructure and of what constitutes the most appropriate public/private relationship in its development, maintenance and use will typically change over time as the infrastructure evolves from a novel innovation to a sophisticated and well-established part of the social and economic landscape; as society, the economy and technology evolve; and as the relative cost and significance of the infrastructure changes;
-the use of geo-spatial data-sets seem to be shifting from the critical “novel innovation” stage to a broader stage of acceptance and public/private utility, making it imperative to secure now a reasonable degree of public/private consensus on a path forward in the investment, design and management of geospatial framework data for Canada.
With the above review set out as background, Marc Lemaire, Technical Secretary to the Framework Data Node of Geoconnections, provided a review of the kinds of data-sets being considered as part of the initial framework infrastructure for Canada. Key messages included the following:
-framework data-sets serve as the basis for the development of applications and additional valued-added data-sets and other geo-spatial information products, and also provide a template or foundation for the integration, maintenance and updating of geospatial data;
-the objectives of the framework data initiative are to provide national coverage of commonly used data-sets of value to public and private users, ensure appropriate compatability of these datasets, provide tools and services to work with these data, and provide a framework that will accommodate future enhancements on a sustainable basis;
-three forms of datasets are being developed: alignment layers that provide geometric tools to adequately position geospatial information; land feature and form layers, that provide well-defined and readily observable natural or man-made features not subject to interpretation or speculation; and conceptual layers, that provide additional information about physical, social, economic, political/administrative or other factors;
-spatial resolutions will be established at the national levels (largest: 1:750,000 and smallest: 1:7,500,000) and regional levels (largest: 1:10,000 and smallest: 1:750,000);
-four levels of integration will ensure compatibility, integrity and utility of datasets: spatial reference system based on CSRS; scales of data themes: horizontal and vertical integration (“edge-matching”); geometric identifiers: unique identifier for each geometric representation; and unique geometry: an exclusive identifier and geometry for each feature; and
-effective collaboration amongst all government jurisdictions and the private sector will be required in order to create and maintain these framework data-sets.
GeoConnections Policy Node Co-Chairs Ed Kennedy and Tim Davis then set out their perspectives on the policy issues and challenges that need to be addressed in moving forward in the design, development and dissemination of geospatial framework data, and opened up the discussion with the assistance of facilitator Phil Nicholson.
Main themes of the presentation were:
-The GeoConnections initiative is focused on encouraging and facilitating investment in infrastructure that supports broader access to and use of geospatial information for the betterment of society;
-Geospatial framework data are a key element of such an investment because they serve as a base on which many other value-added datasets, services and applications can be developed and made available for public and private use and benefit;
-Geospatial framework data need to be widely accessible, national in scope, and of a suitable quality, consistency and currency;
-Key issues and questions that need to be addressed include:
-What investment and organizational models should be used to create and maintain the framework data?
-What mechanism should be used to determine data content over time?
-How can the quality, consistency and accuracy of data at the national level be assured?
-What
instruments should be used to ensure optimum use of the framework data?
The key observations and conclusions from the subsequent group discussion for the balance of the day are set out below, organized under appropriate themes.
a.) Relevance and Utility of Geo-Spatial Data
-There was universal agreement that geospatial data have profound utility and benefits for a wide range of public, private and consumer applications.
-With this in mind, there was equally wide agreement that Canada needs to accelerate its efforts to make geospatial data more readily available, to promote its uses and benefits. Canada also needs to continually enhance the array of geospatial data available, improve access to and lower the costs of such data, improve the accuracy and reliability of the data, and foster the use of the data as a foundation upon which innovative products and applications are developed.
-It was universally accepted that certain data-sets are more critical than others as the basic foundation upon which more detailed and/or sophisticated data-sets and related applications can be based and/or overlaid.
-There was general agreement that foundation data ought to be developed on a priority basis. They should be made as freely accessible as possible so as to facilitate the development of innovative applications and complementary data-sets that meet more particular user needs.
b.) Definition and Characteristics of “Framework Data”
-By definition, “framework data” warrant special consideration because of their importance in meeting a combination of public and private uses, and in setting the overall foundation for the above-mentioned innovations and more sophisticated applications.
-There appeared to be general agreement that some basic data-sets have particularly profound importance in society and possess special features that they warrant special consideration in how they are developed, maintained and disseminated:
-universal relevance and usefulness in society (public, private and consumers);
-high up-front investment requirements
-high universal (i.e., society-wide) return on investment;
-critical needs for consistency, accuracy and reliability (because of their role as the basic building blocks on which all other applications are dependent);
-critical importance in facilitating national innovation and economic opportunities; and
-critical importance in facilitating the design and delivery of essential public services and benefits).
-In view of these special values and attributes, such data-sets warrant being developed and made available:
-Under affordable terms so that cost/price is not a significant barrier to equitable access to the core data-sets;
-Reasonably conveniently to all key users (including end users as well as innovators/entrepreneurs who intend to develop complementary applications and products), so that physical and/or electronic access issues are not significant barriers to equitable access to the core data-sets;
-With acceptable standards of accuracy, reliability and consistency, so that subsequent embellishments and complementary data products and applications retain basic data integrity and dependability; and
-With relatively unfettered use of the core data-sets, to enable highly innovative applications for diverse uses, including repackaging and resale wherever appropriate for public and commercial benefit.
-The achievement of the above qualities and characteristics in such framework data-sets does not necessarily imply an exclusive role for government. It is quite possible that a highly responsive and competitive private sector could ensure the design and delivery of affordable, accessible, accurate and freely available data-sets on a commercial basis. The public interest need centre only on the degree to which the above criteria can confidently be respected and maintained. Appropriate public/private partnerships can readily work out the means by which such guarantees can be provided, e.g., whether through joint investment and decision-making and/or through the establishment of clear and consistent data standards and access/use protocols, or similar measures.
c.) Vision for Future Developments and Innovation
-With appropriate framework data in place, as defined above, the overall national vision is that the stage would be set for:
-Immediate satisfaction of basic geographical data needs for a variety of public, private and consumer purposes;
-On-going innovations in the development and refinement of additional data-sets and related applications that build on the above foundation – whether these innovations are generated through private entrepreneurs, public authorities or some partnership;
-Future
adjustments in what is provided as framework data, in response to changing
societal needs, data costs, technological innovations or other factors.
d.) What Datasets Should be Included in a National Framework Data System
-There was no immediate agreement on which specific data-sets constitute such critical “foundation” elements. However, there was general agreement that geospatial data on basic “geometry” (essential for the overall consistent and accurate orientation of all other geospatial data), basic landform features (topography and basic hydrography), and principal road networks, all constitute the basic building blocks for a consistent and reliable geospatial data system.
-The issue of road data served as a prime example of where and how to set limits on what is included – or not – in framework data. There was general agreement among forum participants that basic road geometry data should be included as framework data that would be made generally freely available, as per the above criteria. However, there was a predictable divergence of opinion on the utility of expanding the range of attribute data collected for the road network to include such items as road name and civic address range. Decisions of this nature need always to be made on a cost / benefit basis, and by a representative stakeholder group.
-In part, the on-going requirement to make decisions on the development of framework data over time is made more complex by the existence, at least to a certain extent, of similar data in the commercial market - data developed under private investment and for which there is some expectation to enjoy a reasonable return.
-In an attempt to advance the thinking on how such decisions could be facilitated, some suggested that the development, maintenance and distribution should be segmented into different market regions of the country, i.e., competitive private entrepreneurs developing data to suitable standards on their own initiative in the larger urban markets, complemented by public authorities leading the development of comparable framework data in the smaller and more rural and remote markets areas. There was insufficient time to discuss this approach, and no agreement on its potential at the close of the session.
e.) Public Interests and Roles in Data Development, Maintenance and Dissemination
-As noted above, it is in the public interest to ensure that core framework data are made available consistent with the criteria set out above (affordability, accuracy, accessibility and reasonably unfettered use).
-Governments will have a continuing interest in planning and coordinating the most effective means to meet their own data needs.
-The issue of charging for framework data - especially those provided largely or exclusively through public means – need to take into account:
-Implications for commercial competitiveness and opportunities, in response to market demand;
-Impacts on accessibility and use for either commercial innovation and applications or, even more importantly, for public use and benefit; and
-Implications for government agency revenues and hence their available resources for further investments in development, maintenance and dissemination of framework data, and/or the more general promotion and facilitation of innovation in geospatial data development and use.
-The potential for the greater involvement of the private sector in the creation, maintenance, and distribution of framework datasets should be further explored in order to determine:
-How to ensure affordability, accuracy, accessibility and reasonably unfettered use of the datasets, consistent with their significance to society.
-How to manage redistribution of the datasets for value-added applications with the need for the private providers to secure a fair return on their investments.
The one-day forum in July 2001 was considered to be very useful in articulating the main issues pertinent to the development, maintenance and distribution of geo-spatial framework data within the current Canadian context. Especially valuable was the time taken to explore issues in the current public / private sector roles in this domain.
In order to advance the resolution of the issues outlined above, the Policy Node will conduct some further evaluation of the July discussions, as well as other recent pertinent information in order to develop some potential models for public / private sector roles in this domain. These draft models will then form a basis for further discussions toward a consensus approach to the creation, maintenance and distribution of geo-spatial framework data as provided under the GeoConnections Programme.
It is expected that this work will be completed by the end of the first quarter 2002. Further communications on this matter will be made to all participants of the July 2001 Forum as plans solidify.
END