Land Administration Systems

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Land Administration Systems
The role of governance in SDI enabled land
administration systems
Paul Box
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Overview

• Governance
• contexts
• definitions
• Spatial Data Infrastructure
• purpose
• components
• relationship between SDI and LAS
• governance of SDI
• Governance challenges modeling examples
• road modeling example
• data model harmonization in EU
• - technical, geo-centric perspective
• - introduction to concepts

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What do we mean by governance?
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Governance

• concept of "governance" is old
• Greek origin to steer or pilot a ship
• gubernare - design of system of rule
• used synonymously with government
• more recently concept broadened inclusive of
  stakeholders
• governance may operate in an organization of
  any size from a few individuals to all of
  humanity
• key concept in a variety of disciplines BUT
  meaning is dependent on context
• The setting, application and enforcement of rules
  that determine how a group works together to
  achieve common goals

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Governance context

• Review of governance contexts to understand
  governance and its relevance to SDI and LAS
• Societal governance (political sciences)
• Corporate governance (business and public
  administration)
• IT governance (IT)
• Web service governance (IT)

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Societal governance

• governance traditionally associated with
  government - economic, political and
  administrative authority to manage affairs of
  society
• 1980s broader scope - governance and government
  separate concepts
• public sector reform privatization
• increased role of civil society in service
  delivery
• decentralisation - lt role of nat. gov. and gt of
  local gov.
• economic globalization lt state control over
  territories
• governance emphasis on increased role of other
  stakeholders (private sector and civil society)
  decreased role of government

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Good governance

• Development context
• Governance is process of decision-making and
  implementation to conduct public affairs, manage
  public resources, and guarantee human rights
• Good governance advocates that this should be
  accomplishes free of abuse and corruption, and
  with due regard for the rule of law
• Major characteristics participation, rule of
  law, transparency, responsiveness, consensus
  orientation, equity and inclusiveness,
  effectiveness and efficiency, accountability

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Good governance

• good governance requires good geo-information
• Demand for good governance is major driver for
  SDI and LAS

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Societal governance scales

• governance operates at all scales
• global governance of increased importance in
  context of globalization
• political sciences - theory of multi-level
  governance (MLG)
• based on studies of EU and regionalnational
  relations
• describes nature of interactions between
  agencies that are nested in political/administrati
  ve hierarchies BUT that interact independently of
  hierarchy and autonomously with agencies at all
  other levels of the hierarchy
• E.g. Australian State Land Registries are
  participants in development of cadastral data
  models together with EU, national cadastral
  agencies and international bodies such as UN

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Corporate governance
set of processes, customs, policies, laws and
institutions affecting the way a corporation is
directed, administered or controlled
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Corporate governance
Oversight - management, accountability
supervision
Runs the company to achieve agreed objectives
Company
Owners
Board
Management
Workers

• originates from joint stock compnaies - EITC
  17th century
• owners and the company - separate legal
  identities
• management responsible for operation of company
• board elected by and represents interests of
  owners
• board responsible for management, accountability
  and supervision of company management

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Corporate governance drivers

• early 90s corporate governance prominent in U.S.
  CEO dismissed by boards (IBM, Kodak, Honeywell)
• led to shareholder activism
• 1997, the Asian Financial Crisis - exit of
  foreign capital due after property market
  collapse due to lack of corp.gov.
• early 2000s, bankruptcies of (Enron Worldcom)
• increased shareholder and governmental demands
  for accountability through corporate governance
• legislation to reform accounting and reporting

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Corporate governance - public administration

• increasing attention on corporate governance of
  public bodies - to improve oversight and achieve
  improved outcomes
• users of government services are more actively
  engaged in servicve design and monitoring
  co-production

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IT Governance

• Information technology (IT) governance is
  sub-discipline of corporate governance
• focused on IT systems their performance and risk
  management
• previously, board responsible for IT and
  delegated decisions to IT professionals
• today, IT governance emphasises particicaption
  of all stakeholders (incl. the board, and users)
  in the IT decision-making process
• prevents a single stakeholder (typically IT)
  from being blamed for poor decisions
• ensures systems meet business needs

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IT governance challenges

• organisation typically have chaotic
  heterogeneous IT - applications, technologies,
  data
• these exist in silos that serve needs of
  specific business units or domains
• under the control of different owners within
  the organisation
• little reuse (of data or functions)
• multiple copies of the same data may be held by
  different departments major data management
  overhead
• limited integration capabilities i.e. systems
  cannot be connected together easily

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Software silos

• techncial barriers to system integration
  software, platforms file formats
• technical institutional barriers to data
  sharing policy, mentality, strcuture, syntax,
  semantics
• data copied between units multiple copies held
  
• duplicative software development - limited
  re-used

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Service oriented architecture (SOA)

• new technology paradigm
• an approach to organizing and using distributed
  IT resources under the control of different
  owners
• aims to replace organisations current
  heterogeneous IT landscape with modular
  services that are aligned to business needs

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Why do I need to know about SOA?

• SOA typically built using internet - services
  are typically web services
• SOA approaches being used for most e-government
  and e-business solutions
• SOA current paradigm for SDI implementation
• major application in the area of LAS
• governance of SOA based systems is major
  challenge
• domain specialists increasingly involved in
  design of SOA
• land admin specialists need to work with
  business/systems analysts, software developers

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SOA is about services

• SOA is a collection of services
• a service is an autonomous set of functions
• designed to meet a specific business need e.g.
  service for online registration of land
  transaction or lodgement of application for
  planning permit
• software located at specific URLs e.g.
  http//GIS.runme
• computer to computer use of the internet

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How does SOA work - publish find bind

• Service provider creates a service e.g. cadastre
  query service
• Provider publishes the service into registry(s)
• User (program) queries registry to find service
• User (program) sends a request to the service to
  perform a task (bind)
• result returned to user computer
• Based on standards - service description, data,
  communication

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SOA is also about fashion choices??
http//www.youtube.com/watch?vdyHWAiG6c-Y
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SOA solution
Users
Applications services
SOA
Data
Cadastre (land parcels)
Mineral exploration
Taxation
Planning

• services communicate with one another
• many services can use the same data set
• services can pass data between them (across
  departments, organisations, jurisdictions and
  domains)
• Human users interact with services using
  applications

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SOA governance

• SOA built from common components
• before business units had control of own data
  and applications
• now common components (services) are created to
  provide functionality that interact with data
• requires agreements and standards for design of
  infrastructure services and data
• requires trust in operation, quality and
  longevity of services
• Building trust is major challenge

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Governance contexts summary
Societal governance

• focus - how a society is governed
• inclusive of non-state actors
• to ensure improved outcomes in public goods
  and service delivery
• on behalf of society

Corporate governance

• by board of corporation
• to monitor supervise direct operational
  management of corporation
• on behalf of organization owners

• by an organizations designated IT stakeholders
• to enable inclusive effective decision-making
  about an organizations IT resources
• on behalf of organizations managers and
  shareholders

• by designated stakeholders of an infrastructure
• to support decision-making about design and
  operation of shared infrastructure
• on behalf of stakeholders (operators, users)
• within an organization
• Increasingly across organizational and
  jurisdictional boundaries

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Common governance themes

• defines how stakeholders work together to
  achieve common objectives
• inclusive all stakeholders involved in
  decision making
• consensus based - balance interests of
  individual stakeholders with collective interests
• must address all aspects of the decision-making
  process (identification, coordination,
  communication)
• governance has significant management component
  i.e. coordinating implementation of decisions,
  monitoring, managing decision artefacts,

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Spatial Data Infrastructure
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Spatial Data Infrastructure

• Why is SDI necessary?
• What do SDIs comprise?
• How are SDIs and Land Administration Systems
  related?
• What is the role of governance in an SDI?

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Why is an SDI necessary?

• vast geospatial data resources
• potentially useful re-usable
• held by different agencies in silos
• heterogeneous
• data access arrangements
• data file formats
• data structures
• data semantics
• metadata
• technologies

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Current situation 2 organizations

• to share resources providers and users negotiate
  bilateral arrangements

Process

• This is
• ad hoc
• costly (in time, effort, capacity) to negotiate
  process and manage data
• exchange resources cannot be found and re-used
  by others

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For multiple organizations.
Need to negotiate each bilateral resource
provider-user relationship
OGC notional architecture
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leads to lack of interoperability
Lack of common agreements about policy, format,
structure, contents, description of data means
resources are not interoperable the ability of
two or more systems or components to exchange
information and to use the information that has
been exchanged IEEE
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Levels of interoperability

• Organizational interoperability
• - policies, agreements, rules that enable
  organizations to work with each other
• Technical interoperability
• - communications protocols and data file formats
  that enable the exchange of data between systems
  (e.g. HTTP, XML)
• Information interoperability
• - Syntactic interoperability common structures
  for data exchange (data models)
• Semantic interoperability common descriptions
  and definitions to ensure that the content of
  information exchanged is understood and can be
  used (vocabularies)

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So how do we achieve interoperability and improve
access to geospatial resources? Publish,
discover and re-use resources using a Spatial
Data Infrastructure (SDI)
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Key components of an SDI
SDIs are increasingly built using web services
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So this. Is transformed to this..
OGC notional architecture
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Federal
Tribal
Civilian
National Policy
Makers
State
Commercial
Local
DoD Users
International
National SDI portal
Environment Portal
Egov portal
WEB
LAS
State Portals
State Governments
Local Governments
Civilian Sector
Commercial Sector
Tribal Governments
Federal Government
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A users view
Server 1 Elevation
Server 2 Hydrography
Service Catalog
Server 3 Govt Unit Boundaries
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Advantages of web service based SDI

• build large complex systems by linking modules
• maintain data in proprietary formats
• enable access to data using standards
• internet becomes the computing platform
• networked across and between organizations

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SDI hierarchy

• SDIs are hierarchical e.g. NSDI comprises local
  and thematic SDI
• lower levels contribute data to higher levels
  e.g. State data sources aggregated at national
  level
• web services are technical enabler for online
  data sharing between SDI levels

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Re-use within an SDI

• Create shared infrastructure to improve access
  to resources
• Providers
• publish resources using the infrastructure
• based on agreed standards
• Users discover and re-use resources.

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What do we mean by resources?
Two main types 1. Data accessed via web
services
2. Agreements about how the SDI behaves -
Policy agreements (data access, MOU, funding,
service agreements) - Technical agreements
technology and information standards e.g. data
models, vocabularies, metadata, service
specifications
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Why do you need to discover agreements?

• data and services are designed according to
  technical standards
• SDI stakeholders are numerous and distributed
• agreements and standards change rapidly
• therefore stakeholders must be able to find and
  use up-to-date standards and agreements

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Standard and data publishing
e.g. cadastral data model data product
specification
Publishes Standard
Publishes service (that provides the data)
Finds service data standard
Finds Service
Uses Service to access data
Develops service (including data model)
SDI
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Whats the relationship between SDI and Land
Administration Systems?
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Land administration generates information about
places.SDIs organise spatial
information.Together they provide information
about unique places people create (built) and use
(natural).
Relationship between SDI and LA
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LAS characteristics

• land administration system for a jurisdiction
  may comprise independent registers and systems
• registers may be operated and managed
  independently
• data stored using different file formats,
  semantics, processes, technology and data
  standards
• data management duplicated across departments
• cadastre is a key component - defines land
  parcels
  
  
  
  
  

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SDI - LAS relationship

• SDI comprises, core data sets commonly used SDI
  community
• LAS can contribute generic layers of information
  to general purpose or specialist SDIs
• primary interest in land parcels cadastre
• land administration uses data from SDI
• SDI approach can be used to develop integrated
  LAS separate from generic SDIs

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SDI perspective
SDI comprises framework data most common data
themes used by a community of geospatial data
users
Cadastral (Parcels/Boundaries)
Elevation and Bathymetry
Transportation
Hydrography
Geodetic Control
Governmental Units
Orthoimagery (DOQ)
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The need for interoperable land information

• Within single jurisdiction
• horizontal interoperability of cadastre (and
  other LAS data sets) with core SDI data sets
• e.g. Land Registry (cadastre) and Water
  Management Authority (river basin catchment
  areas) and Topographic Mapping Agency (DEM)
  accessed via SDI and used for simulation modeling
• Between layers of SDI hierarchy
• horizontal interoperability of data sets
  between jurisdictions e.g. cadastres of VIC and
  NSW to enable
• vertical integration e.g. aggregation at
  national level or regional level for neighboring
  countries

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Interoperability through data models

• in each jurisdiction different data models, file
  formats, standards, semantics, legal framework,
  business rules are used for cadastral information
  
• exchanging of cadastral information between
  countries is complex
• to achieve interoperability of a geospatial data
  theme e.g. roads or land parcels, data need to
  develop a common data model - Rosetta stone
• to develop, manage and implement common data
  models major governance effort is required

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Whats the role of governance in an SDI?
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to glue together the technology, organizations
and information that comprise an SDI
Processes and institutions to define and manage
agreed policies, technologies, standards, practice
s, protocols specifications and to monitor the
SDI
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Governance dimensions
POLICIES AND AGREEMENTS (What?)
Operational (technical) dimension
DECISIONS (Who?)
PROCESSES (How?)
What decisions must be made for effective
management? How will decisions will be agreed,
implemented, documented managed? Who will make
those decision?
Adapted from Oracle SOA Governance White paper
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Governance dimensions
POLICIES AND AGREEMENTS (What?)
Operational (technical) dimension
DECISIONS (Who?)
PROCESSES (How?)
Operational/technical dimension critical
challenges Institutional dimension roles mapped
to existing orgnisations or creation of new
organizations
Adapted from Oracle SOA Governance White paper
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Governance scope
Infrastructure project funding

• Projects
• Services
• Legacy apps

Roles Responsibilities Relationships
Monitor Enforce agreements
Design and implementation of shared projects
Supported by management
Standards Data quality Custodianship Authority
Shared infrastructure components e.g.. portal,
catalogue common services
Architecture Standards Reference implementations
Adapted from Oracle SOA Governance White paper
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Critical challenges

• SDI are increasingly built using SOA
• Critical governance challenges are
• standards governance
• web service governance

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Standards governance

• SDI depend upon a large suite of standards
  covering every aspect of SDI from policy to
  technical specifications
• Generic standards developed by ISO, OGC,
  information communities

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Spatial data infrastructures standards
Access, technology
Organization
Content (data)
ISO 19103 - Conceptual schema language ISO 19107
- Spatial schemaISO 19108 - Temporal schemaISO
19109 - Rules for application schemaISO 19110 -
Feature cataloguing methodologyISO 19111 -
Spatial referencing by coordinatesISO 19112 -
Spatial referencing by geographic identifiersISO
19113 - Quality principlesISO 19114 - Quality
evaluation proceduresISO 19115 MetadataISO/TR
19121 - Imagery and gridded data ISO 19123 -
Schema for coverage geometry and functions ISO
19124 - Imagery and gridded data componentsISO
19126 - Profile - FACC Data DictionaryISO 19127
- Geodetic codes and parametersISO 19129 -
Imagery, gridded and coverage data frameworkISO
19130 - Sensor and data model for imagery and
gridded dataISO 19131 - Data product
specificationISO 19137 - Generally used
profiles of the spatial schema and of
similar important other schemas
Documentation
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Spatial data infrastructures standards
Access and services
ISO 19116 - Positioning servicesISO 19117
PortrayalISO 19118 EncodingISO 19119
ServicesISO 19125-1 - Simple feature access
Common architectureISO 19125-2 SFA SQL
option ISO 19125-3 SFA COM/OLEISO 19128 -
Web Map Server InterfaceISO 19132 - Location
based services possible standards ISO 19133 -
Location based services tracking and
navigation ISO 19134 - Multimodal location based
services for routing and navigationISO 19136
Geography Markup Language (GML)
Access, technology
Organization
Content (data)
ISO 19101 Reference modelISO 19104
TerminologyISO 19105 Conformance and
testingISO 19106 ProfilesISO/TR 19120
Functional standardsISO 19135 Procedures for
registration of geographic information items
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Spatial data infrastructures standards

• OpenGIS Specifications
• Web Map Service (WMS)
• Web Feature Service 1.0
• Web Coverage Service (WCS)
• Catalog service for web (CSW)
• Geography Markup Language 3.0 (GML)
• Coordinate Transformation
• Grid Coverages 1.0
• Filter 1.0
• Style Layer Descriptor 1.0 (SLD)

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Standards governance

• core standards OGC and ISO common to most SDI
  implementations are to ensure applicability
• need to be adapted to suit implementation
  context
• profiles developed - specify constraints on base
  standards
• e.g. generic standard - must use subject keyword
  to describe data set national standard
  constrains choice to a generic list of keywords
• domain standard - constrains choice to specialist
  domain keyword list
• standards profiles developed independently
  domains/jurisdictions
• gt demand for data sharing between SDIs - need
  agreements (standards) that define
  interoperability
• significant governance challenge

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Summary

• SDI being built to enable sharing of geospatial
  data
• SDI are being built using SOA to enable services
  to access distributed heterogeneous geospatial
  data sources
• SDIs have multiple stakeholders with different
  needs, motivations, technologies
• to create and operate SDI with information
  interoperability numerous standards and
  agreements required
• Standards development is complex
• SDI LAS (cadastre) and SDI are likely to become
  increasingly integrated
• Governance plays a critical role in
  implementation of SDI
• Critical challenges are standards governance and
  service governance
• LA professionals as users (of SDI data) and
  mangers of LA data are key stakeholders in system
  desig