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CONTENTS Executive Summery 2 Introduction 3 Chapter 1 A Spatial Data Infrastructure For Ireland?

The emergence of the Spatial Data Infrastructure (SDI) concept 4 What is an SDI? 4 The Irish SDI 5 Connections with wider initiatives and obligations 6 Engaging the wider Irish Geographic Information (GI) community 7

Chapter 2 What Is A Decision Support System?

The Importance of Geographical Information Systems in decision support 8 Integration of map and other data using GIS 8 Emergency response to flooding and Decision Support Systems 9 Examples of Decision Support Systems 9

Chapter 3 Metadata

Background 11 Current international standards and initiatives 11 The situation in Ireland 12

Chapter 4 Flooding In Clonmel Clonmel 13 Chapter 5 A Decision Support System for Flood Management in Clonmel

Data required 15 The demonstration system explained 16 Developing a web-enabled DSS using server technology 19

Chapter 6 Discussion (including lessons learnt from National & International Projects)

Data access 20 Data preparation 22 Data quality and metadata 22

Conclusion 24 Glossary 26 References 27

Irish Spatial Data Infrastructure Demonstration Programme - Flood Management for Clonmel 2

Executive Summary Throughout the world the concept of a Spatial Data Infrastructure (SDI) is gaining support. Moreover, some countries have now moved beyond the concept stage and are involved in the development of national SDIs. In Ireland, SDIs are gaining support among professionals and decision-makers who have to use geographic information as a basis for their work. A spatial data infrastructure (also known as spatial information infrastructures, geographic data infrastructures, geospatial information infrastructures, and variations thereof) comprises of hardware, software, data, personnel, communications networks, standards, protocols, organisational frameworks and other elements required to facilitate ready and effective access to and use of spatial information. Like other types of infrastructure (roads, telecommunications, health, etc.), the intention is to provide a coordinated and managed facility that will support a wide variety of functions and stakeholders, the latter including both private- and public-sector bodies, as well as members of the general public. The current report and accompanying CD address the need to inform and raise awareness (particularly among middle- and upper-level managers of government departments, local authorities and state- and semi-state organisations) of SDIs. The report seeks to give decision-makers and those likely to be called upon to “buy into” ISDI, through contributions of time, human resources, data provision, etc., a clearer idea of the nature, importance and potential benefits of the intended spatial data infrastructure. It does this by focusing on the severe flooding that affected much of Ireland, and specifically the town of Clonmel, in October 2004. The study illustrates and analyses the problems of data access and management that confronted decision-makers tasked with responding to the emergency; and seeks to demonstrate how the situation might have been much more effectively handled if a functional SDI had been in place. The work assessed the usefulness of creating an SDI by designing a Decision Support System (DSS) for flood management in Clonmel. A DSS is an interactive computer program application that analyses data from a wide range of sources and presents the output to the non-technical decision maker in order to support organisational decision-making activities. A DSS assists with the compilation of useful information from data, documents, models and expert knowledge to provide stakeholders with a more objective tool for identifying and solving problems. The Clonmel case study clearly showed that there is an urgent need for a national framework, a Spatial Data Infrastructure, to reduce time wasted in data collection and assessment of data quality and to streamline data integration for the purpose of improving the decision-making process.


Irish Spatial Data Infrastructure Demonstration Programme on Flood Management Introduction Throughout the world the concept of a Spatial Data Infrastructure (SDI) is gaining support. Moreover, some countries have now moved beyond the concept stage and are involved in the development of national SDIs. In Ireland SDIs are gaining support among professionals and decision-makers who have to use geographic information as a basis for their work. An SDI is seen as the technology, policies, criteria, standards and people necessary to promote geospatial data sharing throughout all levels of government, the private and non-profit sectors, and academia. Establishing an SDI, however, also requires "buy-in" from higher echelons of decision-makers and strategy formulators, many of whom are distant from the operational problems that working with geographic information frequently entails. This was very well illustrated by the recent experience of flooding in Clonmel, and elsewhere, in October 2004. During this flood emergency, many operational decisions had to be reached quickly, by a wide variety of organisations and bureaux, many of which would have been based on the use of geographic information. These would typically have included the relevant county and urban district councils; Gardai, fire and other emergency services; the insurance companies; the National Roads Authority; the Environmental Protection Agency; bus and other transport operators (who might have had to re-route services); electricity and other utility companies (for safety and operational purposes); farmers' organisations; and many more besides. Collecting the data required for decision-making is frequently time-consuming and laborious. Under emergency conditions, the lack of ready access to such data may result in poor decisions, and conceivably greater risk to lives and property. In addition, the presence of so many agencies, each hunting for data that has many common requirements and objectives, leads to inefficiencies, duplication of effort and much potential waste of resources. An effective Spatial Data Infrastructure offers the way to avoid such problems. This project assessed the impediments and issues that prevented effective access to (spatial and non-spatial) data before, during and after the October 2004 floods in Clonmel; and demonstrated just how these problems might have been overcome or minimised had a well-designed and properly supported SDI been in place. A CD containing a Decision Support System for flood management in Clonmel was produced to show how effective data integration could aid in emergency situations.


Chapter 1 - A Spatial Data Infrastructure For Ireland? It has been widely recognised that many challenges facing society today, such as environmental protection, resource management or strategic planning, are of a complex nature. These challenges can only be resolved through proactive measures and inter-disciplinary co-operation. Formalising effective policies requires informed decision-making, which must be based on sound scientific knowledge and stakeholder participation, which, in turn, require reliable data, much of which has a spatial component. Ideally the data needed to support decision-making should be readily available and accessible to users so as not to delay any progress. In most countries, nevertheless, geographic databases are still fragmented; they can lack completeness, currency and accuracy; they may be duplicated; or they may be subject to variable and sometimes complex access restrictions, involving various licensing, pricing or institutional constraints. Additionally, even if data can be sourced, it is often difficult to integrate these data into the variety of Geographic Information Systems (GIS) in use in Ireland (and elsewhere) today. These issues highlight the need to establish a framework for the management of spatial information, which encompasses a wide range of data, policies, institutional arrangements, metadata, information and communication technologies as well as legal and economic concerns. Such a framework is called a “Spatial Data Infrastructure” (SDI) (e.g. Nebert, 2001, p. 8). The emergence of the SDI concept Since the mid 1990s, numerous SDI initiatives have arisen, at geographic scales ranging from the global (e.g. the Global Spatial Data Infrastructure [Nebert, 2001]) through to the regional (e.g. the European INSPIRE project), national and local scales. Irrespective of the geographical focus, the primary goal of any SDI is the creation of a platform whereby harmonised data from various origins can be seamlessly, downloaded, stored, linked, integrated, analysed, printed and distributed, to serve the key spatial needs of a wide range of users and policy makers who rely on the application of geographically referenced data. Specific applications could include successful environmental protection across administrative boundaries, efficient emergency response actions, citizen empowerment, and greater participation in decision-making by stakeholders and others. Throughout the world, nation states are at different stages of SDI development, and Ireland has only begun its journey on the spatial information highway. What is a Spatial Data Infrastructure? A Spatial Data Infrastructure (also known variously as spatial information infrastructures, geographic data infrastructures, geospatial information infrastructures, and variations thereof) comprises of hardware, software, data, personnel, communications networks, standards, protocols, organisational frameworks and other elements required to facilitate ready and effective access to and use of spatial information. Like other types of


infrastructure (roads, telecommunications, health, etc.), the intention is to provide a coordinated and managed facility that will support a wide variety of functions and stakeholders, the latter including both private- and public-sector bodies, as well as members of the general public. In many countries and regions, provision of SDI is seen as an essential and integral step foundation towards:

• E-government;

• E-commerce;

• Greater participation of the citizen in government;

• Development of a knowledge-based economy; and

• Promotion of information-aware societies generally. The Irish Spatial Data Infrastructure (ISDI) The Irish Spatial Data Infrastructure project officially started in March 2002, when the Department of the Taoiseach, in association with the Information Society Commission, published the “New Connections” Action Plan on e-government (Department of the Taoiseach, 2002). In addition to acknowledging the importance of the Information Society generally, the document prioritises the establishment of a National Spatial Data Infrastructure (NSDI) within the context of Irish e-government initiatives. It also states that spatial data are to be incorporated into other information management activities as to secure the targeted and integrated delivery of government services. Six months later, in November 2002, the Department of the Environment, Heritage and Local Government was appointed to lead the establishment of an Irish Spatial Data Infrastructure (ISDI), based on the advice and expertise of the ISDI Working Group, which comprises specialists from several organisations. Since then, a consultation paper has been sent out to various stakeholders (Department of the Environment, Heritage and Local Government 2004) to acquire input to the process of ISDI development. Several pilot projects (e.g. Mobhaile by the LGCSB) have been launched and work is ongoing to create a formal policy framework to achieve recognition as an example of best practice in 2007 (McCormack, 2003).

Mobhaile User Interface (source: http://www.mobhaile.ie/html/look-1.htm)


http://www.mobhaile.ie/html/look-1.htm

This is an ambitious undertaking and many obstacles will have to be overcome before the information society can fully benefit from an ISDI. For example, it is necessary to raise the level of awareness and to promote the appreciation of associated issues among institutions, businesses and the general public in order to assess user needs and requirements, particularly since financial and human resources have to be made available to fill gaps in data, to create metadata which record existing data and their properties, to adopt data standards, and to address copyright and privacy issues as well as the lack of willingness to share data. Simultaneously, Ireland has committed itself to comply with the INSPIRE principles (JRC, 2003) which give perspective to the establishment of an Infrastructure for Spatial Information in Europe. Briefly, these principles state that:

• Data should be collected once and maintained at the level where this can be done most effectively; • It should be possible to combine seamless spatial information from different sources across Europe

and to share it between many users and applications; • It should be easy to discover which geographic information is available, fits the needs for a particular

use and under which conditions it can be acquired and used; • Geographic data should become easy to understand and interpret because it can be visualised within

the appropriate context in a user-friendly way. (http://inspire.jrc.it/principles_en.html). These principles have also been adopted and subsumed within the overall objective of Irish SDI activities. Connections with wider initiatives and obligations A properly working SDI needs to be underpinned by the implementation of policies and agreements to facilitate access to digital spatial data and support services by public sector bodies and private enterprises. While an SDI policy framework is being developed for Ireland, the country is already legally bound to global agreements such as intellectual property rights through the World Trade Organisation (WTO) and the TC 211/19100 series of standards on geographic information set up by the International Standards Organisations (ISO). Ireland will also in due course be required to adopt the forthcoming European INSPIRE Directive, which will legalise the establishment of the European SDI (ESDI) alluded to above, and which will in turn promote the successful implementation of other significant EU Directives that require an effective management of geographic information, such as the Water Framework Directive.


http://inspire.jrc.it/principles_en.html

Engaging the wider Irish GI community The ISDI project is a gradual and long-term one, but to make it profitable to many users as soon as possible, particularly to organisations with geographic information capacities and an understanding of associated matters, such as central and local government, academic and research bodies and private enterprises, the ISDI Working Group recognises the need for close consultation and engagement with the wider Irish (and international) GI community at all stages of the initiative. The consultation document referred to above was a key element of this engagement, undertaken at the preliminary scoping and project definition stage. The current document and accompanying materials now address the need to inform and raise awareness, particularly among middle- and upper-level managers of government departments, local authorities and state- and semi-state organisations. It seeks to give decision-makers and those likely to be called upon to “buy into” ISDI, through contributions of time, human resources, data provision, etc., a clearer idea of the nature, importance and potential benefits of the intended spatial data infrastructure. It does this by focusing on the severe flooding that affected much of Ireland, and specifically the town of Clonmel, in October 2004. The study illustrates and analyses the problems of data access and management that confronted decision-makers tasked with responding to the emergency; and seeks to demonstrate how the situation might have been much more effectively handled if a functional SDI had been in place.

Flooding of the quays, River Suir, Clonmel (Source: Clonmel Borough Council, 2004)


Chapter 2 - What Is A Decision Support System? In general, a decision support system (DSS) is an interactive computer program application that analyses data from a wide range of sources and presents the output to the non-technical decision maker in order to support organisational decision-making activities. A DSS assists with the compilation of useful information from data, documents, models and expert knowledge to provide stakeholders with a more objective tool for identifying and solving problems. Although decision support systems are commonly used for business applications, there are many potential applications that may profit from such programs. The importance of Geographical Information Systems in decision support Geographical Information Systems (GIS) are collectively known as mapping software, however, they are increasingly important for their capabilities to solve complex spatial problems and to integrate multiple objectives. Nevertheless, a GIS is more than just a tool to create maps, but it provides powerful facilities for drawing together data from various organisations, for analysing and manipulating those data and for their visualisation which enables the user to make decisions that must have an explicit spatial dimension. Therefore, a GIS is sometimes referred to as a “Spatial Decision Support System” (SDSS). An SDSS combines a variety of technologies such as environmental models, Global Positioning System (GPS), GIS and the Internet, and it integrates different data of different scales such as demographics, administrative boundaries, water bodies and infrastructure. It also supports numerous data formats such as CAD, tables, graphs, maps and images.

Clonmel Decision Support System (Source: CMRC, 2005)

Integration of a map and other data using GIS The integration of several technologies, models and spatial and non-spatial data may lead to a more meaningful analysis of particular problems, a more effective distribution of information and better decision-making. Accurate information is required in many practical applications such as planning, environmental protection and emergency response management to make predictions, to develop alternatives, to provide


information to stakeholders and to improve communication between managers. Often, information acquired through spatial modelling and other data processing procedures carried out by technical experts may appear complicated and the visualisation of data, through a GIS, in the form of maps, for example, can make them comprehensible to non-technical users at a reasonable cost. Once a database is established, the updating is relatively quick and changes can be displayed on the map. This is particularly useful in emergency situations, such as flooding, which require a rapid analysis of information and creation of outputs to enable speedy preventative and response measures. In connection with the World Wide Web, a GIS can represent the interface between the flood warning system and the end user. (after Wang et al., 1999) Emergency response to flooding and Decision Support Systems An emergency may be defined as an unexpected occurrence that endangers people, property or the environment (ESRI, 2001). GIS aids in the analysis of information to establish and implement emergency response measures, because, as a natural hazard, flooding may have a greatly damaging effects to lives and properties. Many interests and different objectives are involved in flood mitigation and therefore, decisions about flood warning and management depend on the integration of a multitude of spatial and socio-economic and other data that are scientifically sound and accurate. A GIS can fulfil this task and its importance in flood decision support systems also lies in the fact that all phases of emergency planning and the co-ordination of services rely heavily on spatial considerations, from evacuation routes, traffic control and emergency vehicle tracking to the evaluation of storm damages for insurance purposes. While, residents and businesses in flood-prone areas may be warned early enough before the event, emergency personnel and co-ordinating authorities need to rapidly access and display accurate information that is up-to-date and easy to understand. This is the function of a DSS and it may contribute to improve the co-ordination of activities. GIS and associated technologies may be employed to simulate natural circumstances and human efforts before an event to prepare decision makers for risk management, evaluation of options, hazard mitigation and emergencies response. Examples of Decision Support Systems Decision support systems have been developed for many applications. In the UK, the Environment Agency generated GIS-based flood risk maps and they integrate several layers such as land use zones and water bodies. These maps are publicly accessible via the Internet showing flood-prone areas.


Interactive flood risk mapping, Environment Agency, UK (Source: http://maps.environment-

agency.gov.uk/wiyby/mapController) A DSS for maritime search and rescue has been described by Jardine-Smith (no date) and it incorporates temporal information in the GIS to simulate real-world events more accurately. Another example of the application of spatial decision support systems in a coastal context is a GIS-based emergency response decision support system, which was developed by the Coastal Marine Resources Centre for the Shannon Estuary. The aim was to provide users rapid access to all available information relevant to particular incident.

Emergency Response Decision Support System for Bantry Bay (Source: CMRC, 2004)


Chapter 3 - Metadata Background Metadata is textual information that describes a dataset. It adds significant value to a dataset. Metadata consists of information such as when a dataset was created, who created it, as well as explanations of the dataset’s contents. The SDI Cookbook, produced by a working group of the Global Spatial Data Infrastructure (GSDI, 2004), gives a good overview of what metadata is and why it is so vital. The document emphasises that metadata is beneficial to data-producing organisations by providing a well documented record of their datasets, while also helping people within and outside of organisations to find spatial data that they need and determine how best to use them. As the numbers of datasets grow and the exchange of digital data extends with faster computer network connections, there is a need to have accurate and consistent metadata. Without good quality metadata, datasets are rendered virtually useless and cannot be shared or used with confidence (O’Dea, L et

al, 2004b).

Current International Standards and Initiatives Within the EU, standards are being developed all the time. These include standards on manufacturing, workers rights, food quality and so on. Ideally, metadata structures and definitions should be referenced to a standard as well. The development of a standard should enable metadata exchange with other people and institutions with minimum effort. When it came to sharing the data or even the metadata itself with other people and institutions, the shortcomings of these varying standards became apparent. This is still the case for many organisations and efforts are being made to work together to improve the situation (e.g., the Irish Spatial Data Infrastructure for governmental agencies). There are a few ongoing programmes to create standards for metadata. The main ones are the U.S. Federal Geographic Data Committee’s (FGDC) Content Standard for Digital Geospatial Metadata, first created in 1994; the European Committee for Standardization (CEN) Pre-standard CEN/TC 287, adopted in 1998; the Australia and New Zealand Spatial Information Council’s (ANZLIC) Australian Spatial Data Infrastructure, developed in 1996; the International Standard Organisation’s (ISO) ISO 19115: Metadata Standards for Geographic Information, reformatted in 2003; and the Infrastructure for Spatial Information in Europe (INSPIRE) which is currently in development (O’Dea, L et al, 2004b). A number of international projects are also involved in data exchange and metadata issues for non-spatial data, one of the most popular being the Dublin Core Metadata Initiative. While not a standard, it is a consensus driven definition of a set of elements that are required in order to be considered core. The initiative has been quite successful because of the simplicity of the set of elements required (O’Dea, L et al, 2004b).


The Situation in Ireland As of yet there is no independent Irish-defined standard for metadata. Neither is there a national policy advocating best practise for the collection and dissemination of metadata, although the Ordnance Survey of Ireland notes that, “the issue of SDI at a policy level is now well recognised at the heart of government and is explicitly mentioned in the latest Information Society Action Plan” (OSI, 2002, p.5). The Department of the Environment and Local Government has been charged with leading up the development of a policy document for an Irish Spatial Data Infrastructure (ISDI) (McCormack, 2003). Some organisations have been very lax about metadata, while others (e.g., the Marine Institute and the Environmental Protection Agency) have done thorough research to select and work towards an appropriate standard. Irish Organisation for Geographic Information (IRLOGI) is the umbrella organisation for the geographical information industry in Ireland and is a member of the European Umbrella Organisation for Geographic Information (EUROGI). Its mission is to stimulate the development and effective use of geographic information. IRLOGI’s Geo-ID initiative attempts to coordinate, harmonise and present metadata from organisations in Ireland that wish to display information in the system. The metadata elements adhere to the CEN/TC 287 standard, which is being aligned to the ISO 19115 standard (O’Dea, L et al, 2004b). About 25 public and private organisations publicise their metadata via the Geo-ID portal. However, update and maintenance of this portal has been erratic since its creation. As part of the ISDI there is interest in renewing the Geo-ID site to meet ISDI standards, this time with financial and organisational support to maintain and update the metadata database on a regular basis (Bartlett, 2003). A paper by Rybazuk et al. (1999) reviews the state of metadata in Ireland for IRLOGI and recommends Geo-ID as a system around which coordinated development of a national data infrastructure could develop as part of a larger European wide initiative (O’Dea, L et al, 2004b). As previously stated, this project is being used to assess the impediments and issues that prevented effective access to (spatial and non-spatial) data before, during and after the October 2004 floods in Clonmel; and demonstrated just how these problems might have been overcome or minimised had a well-designed and properly supported SDI (involving a Decision Support System/multimedia/metadata) been in place. The Clonmel study demonstrates the requirement for accessible data of a quality and a format that is suitable for management and reliable decision-making. Visualisation and interpolation of the data can be facilitated by technologies such as Decision Support Systems and GIS. This project shows the process of integration of data in a GIS to highlight problems associated with the lack of a SDI and metadata, currently dominating and impacting on management decisions. The aim is to present the case for an SDI by providing a realistic case study – the Clonmel floods of 2004.


Chapter 4 - Flooding In Clonmel Flooding is one of the few natural disasters that affect Ireland on a regular basis. In Clonmel, County Tipperary, in particular, river floods are recurring events and they may pose a hazard to public and private properties and even to lives when the River Suir bursts its banks and the overflowing water inundates normally dry land. Most commonly, floods occur when heavy rain falls on already saturated ground. Households and businesses have raised many flooding concerns, because they not only suffer from damages caused by high waters but they also find it increasingly difficult to obtain flood insurance cover. Irish insurers are said to have paid out a total sum of €300 million in claims for financial losses that were weather related in the Republic. In 1996 Clonmel was seriously flooded due to exceptional meteorological conditions. The quay area was especially affected.

Clonmel (Source: Clonmel Borough Council, 1996)

Clonmel experienced another flood in 2004 and again the quay areas turned into a rapid stream. Roads were blocked and the fire service had to force its way through the large volumes of water.

Several residential areas, such as Raheen Road were disturbed by high waters. Businesses endured losses and were flooded when water levels rose in the town centre. Clonmel (Source: Clonmel Borough Council, 2004).


While it was estimated that from December 1998 to January 1999 insurance claims were as high as £50 million IEP (€63 million) from storm damages, in 2002 a sum of about €87 million was incurred from flooding in Ireland. Now there is a plan to establish a flood relief programme for Clonmel, which is estimated to cost about €35 million. It will have to be able to provide protection against a 100-year flood, which means that an area has a one percent chance of being inundated each year. In addition, pressure has been placed on the Irish Government to assign all responsibilities for flood management and emergency initiatives to a National Flood Defence Agency, which could then provide more integrated support to areas hit by a flood. Flooding of river plains is a natural process and, therefore, developing flood plains is a controversial topic. At this moment in Clonmel, planning permissions are being sought for nine hotels, which would facilitate almost 800 beds. However, applications for developments in the town centre have been met by objection, and a major reason for this is the concern about flooding. The problem is enhanced by the prospect of an unfavourably changing climate resulting in an increasing number of flood events and/ or magnitudes of floods.


Chapter 5 - A Decision Support System for Flood Management in Clonmel Data required There are a number of fundamental datasets, if available, that should be included in a flood management Decision Support System. A number of the datasets, listed below, were identified by those working in the development of flood warning systems in Ireland (pers comm. Luke Ballantyne, OPW). A Decision Support System may include the following datasets. This list is not definitive. Base data:

• Historic mapping; • Low to high resolution current mapping; • Digital elevation models; • Aerial photographs; • Land use maps; • Vector transport networks.

Infrastructure data:

• Water related infrastructure e.g. treatment plants, pipes, abstraction points, manholes.; • Utilities e.g. gas, electricity, telecom; • Planning applications especially in relation to location of flood prone areas.

Catchment data:

• River gauges with information on currently observed flows & levels on a range of time scales, with potential to zoom in / out;

• Links to tables predicting what peak flows downstream will be, given a peak flow at gauge; • Tables giving return periods of flows; • Peak levels of past events; • Sample past hydrographs; • Details of gauge type, its limitations, location, access, historical problems, quick fixes; • Live web cam feed from gauge if available; • Rain gauges offering similar data links as for river gauges (above).

Flood mapping data:

• Predictive flood outlines that could be cross-referenced to levels/flows/return period at a given gauge to show outlines if defence holds; outlines in the event of defence failures;

• Locations of demountable defences / floodgates / key bagging locations; • Property threshold levels - each probability assigned a probability / impact / risk of flooding; • Flood defence asset survey; • Historic flood data /aerial photographs / flood outlines; • Potential to draw-up flood outline as event progresses.

Flood action data & contingency plans:

• Procedures; • Access routes & traffic management contingency plans; • Vulnerability scores (elderly, disabled); • Resources; • Phone numbers of personnel; • Locations of supplies / depots; • Phone numbers of residents / businesses at risk; • Templates of standard warnings.

Media information:

• Templates for press releases, archive photos.


The Demonstration System Explained The CD accompanying this report is a DEMO of how a Decision Support System might appear. It reveals how an Irish Spatial Data Infrastructure could help in the management of essential data for decision makers in the event of an emergency. The DEMO uses flooding events in Clonmel in October 2004 as an example of a DSS but could have used any emergency, such as oil spill, plane crash etc as an illustration of the usefulness of having a spatial data infrastructure in place. This DEMO runs off a CD and, thus, all of the functionality of a DSS running off a web server could not be included, this includes speed for upload of GIS data layers, which is greater as the system is running off a CD. Normally a DSS would include a one-stop shop portal with links to management information and a Geographical Information System that would run off a web server. It is not possible to run a web server from a CD; thus, on the CD we have included 2 GIS systems. The System contains a number of inter-linking elements

1. Contingency Plans

These are password protected so that only the identified decision makers can gain access to information that may be confidential


2. Emergency Contacts

Quick access to contacts for the emergency services such as Garda, hospitals, Civil Defence etc.

3. Frequently Used forms

Here we have inserted a form that could be used by those looking for aid during/after a flood event. The system is computerised so that all the information gets to the decision makers as soon as possible. Any number of automated forms could be added.

4. Clonmel Web GIS

This page links us to a demonstration of a web-enabled GIS. Only a few layers have been added, including the links to ‘pretend’ web cams and rain and river gauges. An engineer on the side of a mountain with a web-enabled phone/PDA, Blackberry etc, could access this type of data from remote sites. This web enabled GIS contains a few select layers, incorporating scalable vector graphics. Links take you to metadata (information about the data layers) and live (demonstration) data and web cams.


Thus, were this DDS to be a fully functional web-enabled GIS, all of the data (base mapping, logistical information, metadata, contingency plans, emergency services information, locations of sand bags, dinghies etc) would be visible through one fast portal, password protected if required, so that access to the website would be possible from remote locations in the event of an emergency situation.

5. Clonmel Desktop GIS

This page links us to a desktop style GIS. Because this DEMO is running off a CD, we could not include a fully functional web-enabled GIS containing all the appropriate data layers (due to speed/space restrictions). Thus, we have included a more comprehensive GIS (running off free ArcReader software, so that access is freely available once the software viewer is installed).

This user friendly GIS illustrates the type of data that could be included in a DSS. As this is a

demonstration, some data layers are not included and some have been created, such as the inclusion of web cams and live links to river and rainfall gauges. Free software is included on the Demo CD.


Developing a web enabled Decision Support System using server technology The development of a web-enabled integrated DDS/spatial data mapping system would be set up in a different way to the way this DEMO CD is set up. A DSS should include a web-enabled GIS and database that is freely accessible via the Internet. The database should be maintainable as new data becomes available over time. A number of components are needed to help build this type of system. Below is a description of an appropriate system. Server

A DSS server set-up could consist of a web server, middleware and a database. Apache could act as the web server. In turn Apache could use the PHP middleware scripting language to generate dynamic html. This dynamic html could include the creation of dynamic GIS image maps through the use of University of Minnesota Mapserver and its PHP/Mapscript module. PostgreSQL could be used to implement the database system. PHP could also dynamically query this PostgreSQL database and display the query results in HTML. All the software used by the server in this example is open source and, thus, would require no license fee.

This diagram shows how the system could be set up. The end user (Web-enabled GIS)

The client computer would use a web browser to interface to the database and GIS through the DSS web service. Technologies that could be used are HTML, JavaScript, style sheets and GIF and PNG formatted images.


Chapter 6 - Discussion (Lessons learnt from this project and other national & international projects)

Data issues in relation to creating a Decision Support System for Clonmel

Data access

Problems associated with data accessibility, ownership, quality, and awareness of data resources persist among professionals and decision-makers who have to use geographic information as a cornerstone of their work. These problems are compounded by management structures, characterised by a plethora of government departments and other agencies with sectoral and data management responsibilities (e.g. Local Authorities, OPW, Town Councils, and Garda, NGOs etc). As a result of the fragmented approach to management, relevant data, for the coastal environment alone, can be collected and held by up to 18 different agencies in six different government departments (Cummins et al., 2003). Commercial organisations, universities, and non-governmental organisations are also involved in data acquisition and management. In order to determine what data exist and who owns them, users must devote a significant amount of time to contacting organisations and asking questions about what is available. This results in a technical specialist expending a lot of time to acquire even the most basic data layers, such as river networks or geological information. Resources are also wasted in creating datasets that may already exist due to the lack of awareness of, or restricted access to, what have already been created (O’Dea, L et al, 2004b). In addition, data owners may not recognise the value (and alternative uses) of their data beyond the scope of their intended purpose, and thus those data are not publicised to potential users in other study areas (DEFRA, 2002). In order to improve the users ability to access data, they need better resources to quickly and easily identify, locate, access, and exchange information, especially in the case of an emergency, where the user may be sited remotely and in need of spatial information on the spot. When creating a Decision Support System for Clonmel, the most time consuming component was identifying what data existed, followed by identifying the relevant person responsible for the data holdings and then the time allocated for data collection. Data collection can mean a number of things. For example, physically collecting new data (e.g. photographs, spatial data), visiting an office because there is not a fast Internet connection to send existing data to an FTP site, or it can mean collecting paper data that will then need to be digitised. With in the Clonmel DDS, all of the above issues were encountered. Over a period of weeks a number of contacts were approached as to the type of data and the location of data holders that existed.


Meetings were held with the following:

• GIS officer for South Tipparary County Council;

• Representatives or Clonmel Borough Council;

• Clonmel Civil Defence. Phone calls were held and emails exchanged with the following:

• Ordnance Survey of Ireland;

• Office of Public Works;

• GIS officers for Galway, Cork & Louth (to assess flood management projects in other counties);

• National Centre for Geo Computation, NUI Maynooth;

• Engineering Contractors involved in Flood Management (EG Pettit & Co.);

• Environmental Consultants based in Clonmel. Data was acquired from five primary sources:

• Ordnance Survey of Ireland - digital data;

• South Tipparary County Council – digital data;

• Clonmel Borough Council – flood photographs and background information;

• Clonmel Civil Defence –Flood Response Plan & Assistance Required Forms;

• EG Pettit & Co (hard copy data) – flood envelops and locations of river & rainfall gauging stations. Datasets were purchased from the Ordnance Survey of Ireland to create a number of layers of base mapping for the demonstration. These included various resolutions of raster and vector data, along with digital elevation models and ortho photographs. Initially a meeting was held with the GIS officer in South Tipparary County Council. This contact yielded the most digital data, as would be expected. Much of the data required was available because of the introduction of the Water Framework Directive and the strict regulations involving digital data for the Directive. Clonmel is part of the South Eastern River Basin District (RBD). Emails to those involved in the management of the South Eastern RBD did not yield data, information or a response. Thus, some digital datasets came indirectly via South Tipparary County Council. The Clonmel Civil Defence and Borough Council provided important local knowledge and hard copy data such as the ‘Flood Response Plan’, ‘Control Centre Request for Assistance’ forms and photographs of past flooding events. In all 12 individuals/groups (governmental and industry) were contacted and were ultimately forthcoming in providing digital data/hard copy or advice.


In conclusion, help was readily to hand from the majority of those approached. Unfortunately though, a number of datasets that were required were unavailable, much of the data acquired did not come with, or never had, metadata associated with it and some data was confidential, so could not be used in the demonstration. Acquisition of a typical dataset involved several phone calls to multiple agencies over two months. If this project were implementing an actual DSS then the effort, cost and time involved in deploying the system would be far greater. The existence of an ISDI would facilitate a considerably quicker turn around in relation to the development of systems and tools such as this. Data Preparation

Data preparation is also time consuming. Due to the variety of data types (and software formats) that exist, data for Clonmel came in various GIS/CAD formats and was converted to ESRI shape file (or jpeg) for data processing and further processing for web-enabled GIS in scalable vector graphic (SVG) format. Where batch-processing tools were not readily available then programs/scripts had to be written. This process was time consuming. Some information was not readily available in GIS format or even digital format (such as location of emergency services, contingency plans etc.), which meant that a certain amount of data capture and data processing was necessary to transform information from paper or alternative digital formats for inclusion in the GIS framework. Because of complex data relationships, time was spent determining the most informative way of displaying that data spatially, and GIS layers were then created. Data Quality and metadata

The lack of good quality metadata can render specific datasets virtually useless due to the uncertainty of data quality, content and reliability (Bartlett, 1999).

Dealing with data quality issues involves checking for errors in the datasets and eliminating inconsistencies in the way data are presented in order to provide a greater confidence in the data. Acquiring adequate metadata for Clonmel proved challenging. Often the datasets that were available were a number of years old, did not contain metadata and no one knew who originally created the dataset. This is a common problem, not one solely related to Clonmel. It often proves as difficult to get metadata from specific data provider organisations, such as the Ordnance Survey of Ireland, as it is from the small environmental consultant. In the Clonmel study every data provider had to be asked to give information (or metadata if it did exist) with his or her datasets. This metadata was


never in a transferable format, such as XML, and we had to create metadata for almost every dataset that we received, based on information gleaned from the provider. Metadata is extremely important and the beauty of good metadata, within an SDI, is that an immense amount of time can be saved by not replicating work that other data users have completed. It is hoped that the development of an ISDI would promote the good use of metadata throughout spatial data industries. The availability of reliable metadata would have saved much time in the development of a DSS for Clonmel.


Conclusion Problems associated with data accessibility, ownership, quality, and awareness of data resources persist among professionals and decision-makers who have to use geographic information as a cornerstone of their work. These problems are compounded by management structures, characterised by a plethora of government departments and other agencies with sectoral and data management responsibilities. The Irish Spatial Data Infrastructure Demonstration Programme on Flood Management demonstrated all of the problems above and found that there are numerous bottlenecks to be overcome before we can reach a situation where data of good quality can be readily integrated into a DSS. These bottlenecks include:

• Accessibility: Identification of data providers and data types; Cost; Ownership constraints; Confidentiality.

• Quality: Metadata.

• Time (duplication of effort e.g. by 2 government departments). With technological advances in computer networks and open source technology, the potential for sharing data and eliminating some of these bottlenecks (identification of data providers and data types, time and metadata duplication primarily) through distributed networks is becoming a reality (Ó Tuama, 2003). Widely adopted international standards like ISO 19115 can make these efforts more seamless and can eliminate some of the major hurdles that prevent this type of data sharing becoming a reality. The issues with cost (e.g. double payment for government departments when data is collected using taxpayer’s money to start with), ownership

constraints and confidentiality are harder to solve and need to be addressed by strategic planning at a national level. If Ireland implements a Spatial Data Infrastructure we would have a framework, which would afford us timely access to data and we would be assured of the data quality by the addition of metadata. We would be aware of sharing protocols, licences and use restrictions. We would not only possess a solution that would be time effective and cost effective but ultimately we would possess a reliable source of information to aid in the management of a multitude of issues that we face in the digital world of today. The absence of an ISDI leaves us floundering behind many other countries. In the case of a major emergency, the lack of access to essential data could put lives at risk. Ready access to transport networks, telecommunications and infrastructure information, along with remote access to contingency plans, telephone


numbers, live web cams, would aid in the decision making process and ultimately save lives or mitigate damage to property. The Clonmel case study clearly showed that there is an urgent need for a national framework, a Spatial Data Infrastructure, to reduce time wasted in data collection and to streamline data integration for the purpose of improving the decision making process.


Glossary CEN - European Committee for Standardisation CSO – Central Statistics Office GENIE – Geographic Information Network for Europe GI – Geographic Information GIS – Geographic Information Systems INSPIRE – Infrastructure for Spatial Information in Europe IPA – Institute of Public Administration IRLOGI – Irish Umbrella for Geographic Information ISDI – Irish Spatial Data Infrastructure ISO – International Standards Organisation LGCSB – Local Government Computer Services Board NGO – Non-governmental Organisation NSDI – National Spatial Data Infrastructure OSi – Ordnance Survey of Ireland TC – Technical Committee


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Irish Spatial Data Infrastructure Demonstration Programme ... · Irish Spatial Data Infrastructure Demonstration Programme on Flood Management Introduction Throughout the world the