GIS and Evidence-Based Policy Making - Chapter 1 ppsx

The chapters in Section II of Part I are all concerned with developments inthe methods that can be used to undertake the analysis of spatial data forthe purposes of informing policy.. He

and Evidence-Based Policy Making

University of Strathclyde, Glasgow, Scotland

GIS for Environmental Decision-Making

Edited by Andrew Lovett and Katy Appleton

GIS and Evidence-Based Policy Making

Edited by Stephen Wise and Max Craglia

Dynamic and Mobile GIS: Investigating Changes in Space and Time

Edited by Jane Drummond, Roland Billen, Elsa João, and David Forrest

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Library of Congress Cataloging-in-Publication Data

GIS and evidence-based policy making / editors Stephen Wise and Max Craglia.

p cm (Innovation in GIS)

Includes bibliographical references and index.

ISBN 978-0-8493-8583-4 (alk paper)

1 Geographic information systems Government policy 2 Geospatial data 3

Information storage and retrieval systems Geography Government policy I

Wise, Stephen II Craglia, Massimo III Title IV Series.

Prefac e

Editor s

Cont ributors

GISRU K Com mittees an d Sponsors

Part I C ollecting E vidence

Section I Data Issues

1 National Spatial Data Infrastructure Phenomeno n

Ian Masser

2 Urban Neighborhood Pattern Recognition Using HighSpatial Resolution Remotely Sensed Data and Point-BasedGIS Data Sources

Victor Mesev and Paul McKenzie

3 Geodemogr aph ics

Richard Webber

Se ction I I M eth odo log i cal A dv an ces

4 Routing o ut the Hot Spots: Toward Us ing GIS

and C rime-Place Principles to Examine Crim inalDamage to Bus S helters

Andrew Newton

5 Policy Implications of Pockets of Deprivation

in Sc otland

Daniel Exeter, Robin Flowerdew, and Paul Boyle

6 Crime Map A nalyst: A GIS to Support Local-AreaCrime Reduction

Paul Brindley, Max Craglia, Robert P Haining,

and Young-Hoon Kim

7 Using GIS to Identify Social V ulnerability

in Areas of the United K ingdom That Are at R iskfrom Flooding

Tom Kieron Whittington

8 Pattern Identification in Public Health Data Sets:The P otential Offered by Graph Theory

Peter A Bath, Cheryl Craigs, Ravi Maheswaran,

John Raymond, and Peter Willett

9 Residential P roperty Utilization: Monitoring

the Governm ent Intensification Agenda

Peter Bibby

Part II Maki ng Pol icy

Section I Engaging with Polic y-Makers

10 A pplication o f GIS to Support Land

Administration S ervices in Ghana

Isaac Karikari, John Stillwell, and Steve Carver

11 S patial Methodologies to S upport Postwar

Rec onstruction

Sultan Z Barakat, Adrijana Car, and Peter J Halls

12 M alta NPI P roject: Developing a Fully

Accessible I nformation System

Malcolm Borg and Saviour Formosa

1 3 A GIS-Base d Me t ho do lo gy to Su pp ort t he

Development of L ocal Rec ycling Strategies

Andrew Lovett, Julian Parfitt, and Gilla Su¨nnenberg

14 C omparison o f Discrete-Choic e Modeling

and A ccessibility-Based Approaches: A ForestRec reation Study

Mette Termansen, Colin J McClean, and Hans Skov-Petersen

Section II Engag ing with the Public

15 E ngagin g C itizens: The B radford C ommunityStatistics Project

Derek Reeve, Erik Thomasson, Steve Scott,

and Ludi Simpson

16 Public -Oriented Interactive EnvironmentalDecision Support S ystem

Tan Yigitcanlar

17 Public Participation in the Digita l A ge:

A Theor etical Approa ch

Robin S Smith

In 1993, the first of the GIS Research U.K (GISRUK) conferences was held atthe University of Keele Before that, U.K GIS conferences had been verybroad-based, bringing together the entire spectrum of people who createdand used spatial data and the software to process the data While suchconferences were very valuable, it was felt that there was also a need for

an academic conference where the focus would be purely on research It wasclear from the very first Keele meeting that the GISRUK conference serieswas fulfilling a useful function in bringing together researchers from all thedifferent disciplines that contribute to geographic information science(GISc) in an informal but stimulating atmosphere The Sheffield GISRUKconference in 2002 was the 10th anniversary of the conference series, andthus represented a chance to look back at the first 10 years and look forward

to the future

GISRUK can be proud of its achievements in the first 10 years of itsexistence Attendance at the conferences has grown and become moreinternational One of the original aims was to make GISRUK a forum inwhich young researchers could be encouraged and welcomed, and this hasgrown to become one of the most distinctive features of the conferences.Every year there is a young researchers’ forum, which takes place immedi-ately before the main conference and allows those starting out on researchcareers in GIS to meet each other and share their experiences and to receiveadvice and feedback from experienced researchers There is a special prizefor the best paper presented by a young researcher The success of thisapproach to inducting newcomers into the GIS research community can bejudged by the fact that a previous winner of this prize is now a member ofthe national steering committee

One of the interesting things about GISRUK is that there is no formalassociation behind the conference series A national steering committeeexists, to provide some continuity from year to year, but each conference

is effectively autonomous and the local organizing committees havethe freedom to run things as they see fit During the Sheffield conference,one of the invited speakers, Professor Ian Masser, made the suggestion thatGISRUK might seek to take on the role of representing the views of the U.K.GIS research community more widely in the way that AGILE does withinEurope This generated a lively discussion both during and after the con-ference session, which is after all what you want from a keynote talk! It wasdecided that in order to take on this role, GISRUK would have to constituteitself more formally because presently the steering committee is unelected

and thus has no mandate to represent anyone The consensus was that thiswas not the way people wished to see GISRUK develop, not least because itwas felt that the Association of Geographic Information (AGI) is alreadyconstituted in a way that allows it to represent the views of its members,including academics However, one of the results of the discussions was anagreement to forge closer links between the AGI and GISRUK.

One of the main outputs of the GISRUK conferences has been the annualInnovations in GIS volume In keeping with the spirit of review, this volumerepresents something of a change compared with previous volumes Earlyvolumes in the series presented a selection of the best papers from eachconference, covering the full range of GIS However, more recently the trendhas been to produce a volume more focused on one of the main themes

of the conference In this volume we have extended this process The bulk ofthe papers collected here are full versions of papers that were presented atSheffield in 2002 However, in order to produce a book that is a morecomprehensive review of the state of the art of research into evidence-basedpolicy making, we have also invited additional contributions from leadingresearchers in this area

The papers in the first half of the book are concerned with collection ofthe evidence that underpins policy making This has been split into twosections—the collection of data and the methods for analyzing the data toproduce new information

Ian Masser sets the scene with the first paper in this section by stressing theimportance of location as a key factor in policy making at the national level.One of the implications of this is that spatial databases need to be compiledand made available at the national level As Ian demonstrates, the ways inwhich this issue has been tackled vary widely between countries, withthe variations dictated as much by differences in the approach to nationalgovernment as by differences in the availability of data One general patternthat does emerge, however, is a distinct difference between the earlierinitiatives in this area, which were dominated by the efforts of data producers

to complete or extend their data holdings, to current initiatives that are lead

by a wider range of stakeholders and are more focused on providing userswith access to data, and connecting distributed data repositories

The increasing availability of data is partly due simply to the passage oftime, with various data capture projects increasingly turning a paper ar-chive into a digital one Moreover, it is also due to technological advances,both in sources of data and in methods for analyzing these sources.Nowhere is this more true than in the area of Earth observation Theresolution of early remote sensing satellites (in the civilian domain atleast) meant that while it was possible to distinguish the built from thenatural environment, it was not possible to resolve the detailed variationwithin the built environment However, recent satellite platforms havechanged that and it is now possible to resolve individual buildings andplots of land on satellite imagery The challenge is to automate the recogni-tion of the individual features and to try and make inferences about land

use, as opposed to simply determining land cover This is the subject ofthe second chapter by Victor Mesev and Paul McKenzie, in which onepossible approach to classifying urban land-use patterns by using relativelysimple spatial statistics on the pattern of buildings in an area is reviewed.These statistics are shown to distinguish reasonably well between differentpatterns of residential developments in a number of cities in the U.K.Inference is of course an important characteristic of geodemographics, inwhich neighborhoods are classified by drawing inferences from a series ofstatistics on the people who live there The pioneer of this approach, RichardWebber, concludes the first half of Part I with an overview of geodemo-graphics He points out that this technique was originally developed to helptarget policy making in the 1970s, and only later ‘‘escaped’’ into the com-mercial sector, where it is much better known Originally developed in theU.S and the U.K., it is now used in 19 other countries around the world.Despite differences in the categories in which they are used, they show someconstant factors, such as the emergence of a group in the U.K who would becalled ‘‘young upwardly-mobile professionals,’’ or yuppies as they used to

be called in the popular press

The chapters in Section II of Part I are all concerned with developments inthe methods that can be used to undertake the analysis of spatial data forthe purposes of informing policy Health and crime are the two areas inwhich spatial analysis has a long history and it continues to play an import-ant role, and half the papers in this section deal with these two topics Crime

is the subject of the paper by Andrew Newton It has long been recognizedthat the occurrence of crime has a strong spatial pattern, governed at thebroad scale by the distribution of those who take part in criminal activityand at the local scale by the location of potential targets for criminalactivity Newton’s paper extends this focus in two ways First, new tech-nology such as GPS may allow us to begin analyzing crimes in which thelocus of the crime is not fixed but mobile, such as crime on public transportsystems, although little work has been done on this to date Second, Newtonargues that certain locations may act as attractors to crime and takes as anexample of this, criminal damage to bus shelters His analysis reveals atendency for occurrences of damage to be clustered The clustering showssome connection with parts of the city where crime levels are higher thanaverage, but also shows an additional degree of clustering that seems tosuggest that certain locations are the focus of increased criminal activity.Patterns of crime and poor health are often strongly linked to materialdeprivation and it could be argued that in a capitalist society,material deprivation is the single most important determinant of socialwell-being For reasons of confidentiality, deprivation is normally estimated

on an areal basis, which raises all the well-known problems connected withmodifiable areas In Chapter 5, Daniel Exeter, Robin Flowerdew, and PaulBoyle consider the extent to which this approach hides small pockets ofdeprivation within larger areas They take Scotland as their example, and bycomparing deprivation levels at the scale at which policy decisions are

made with the finer scale of the census output areas, they identify a number

of pockets of deprivation that are overlooked in policy making Somewhatsurprisingly, these are not in rural areas, where this problem is normallythought to be most acute, but in suburban areas

Chapter 6 brings us back to crime with a paper by Paul Brindley, MaxCraglia, Robert Haining, and Young-Hoon Kim on the development ofmethods for identifying levels of repeat victimization from crime statistics.There is a technical element to this problem, concerned with how youidentify that the same person or property has been the victim of crime,when the reporting of the location of the crime may differ between inci-dents What is equally interesting in the context of this volume is that thetechniques that were developed to solve this problem had to be appropriatefor use by police officers with no expertise in spatial analysis and onlyminimal training in the new software This raises an issue that is morethoroughly explored in the second half of the book, which is that if GIS is

to make any contribution to evidence-based policy making, such systemsmust be designed with the potential users in mind

One of the key elements GIS brings to the analysis of spatial data, ofcourse, is the ability to bring together multiple sets of information, usinglocation as the linking mechanism There has been a great deal of interest inthe U.K in recent years in the apparently increased incidence of lowlandflooding, which many believe to be linked to the first signs of global warm-ing, and a good deal of work on the prediction of which areas are likely to beaffected The focus of much of this work has been on the potential damage toproperty, the assumption being that as long as this can be avoided orminimized, the inhabitants will be able to take care of themselves TomWhittington’s paper in Chapter 7 makes the key point that the extent towhich this is a reasonable assumption depends on what he terms the socialvulnerability of the inhabitants, a term which covers a whole range offactors that determine how vulnerable people are to a crisis, rangingfrom their mobility to their ability to withstand economic loss As anexample of how these ideas might be carried out in practice, an index ofsocial vulnerability is constructed from readily available data and combinedwith a simple model of flooding

Techniques developed in one field of endeavor can often be applied toother fields, as witnessed by the fruitful cross-fertilization between methodsfor analyzing patterns of crime and health As GIS users we are all well used

to thinking in spatial terms, but we normally interpret the term spatial in thenarrow sense of referring to some portion of the Earth’s surface However,analysis that involves spatial relationships exists in other disciplines too,including computational chemistry where the relationships are between theelements of molecules and compounds Patterns and spatial relationshipsare important in determining chemical properties, and thus computationalchemists have developed powerful tools to describe patterns and matchthem with one another Peter Bath, Cheryl Craigs, Ravi Maheswaran, JohnRaymond, and Peter Willett illustrate how this approach can be applied to

geographical space in order to search for patterns They take the example ofsearching for patterns in the occurrence of ill health and illustrate how thetechnique makes it simple to search for patterns that would otherwise bedifficult to identify using conventional GIS methods.

The final contribution in this section is the chapter from Peter Bibbywhich forms a nice junction between the two halves of the book since

he describes not only some innovative technical approaches but also siders the broader implications of using GIS to provide evidence for policymaking Peter considers the U.K government’s policy of keeping newhousing development away from greenfield sites, by intensifying urbanareas, using brownfield sites, and converting existing buildings The imple-mentation and monitoring of this policy are relatively straightforward usingstandard GIS techniques—for example, overlaying the location of newbuilding plots onto urban polygons reveals that, in the 1990s, 57% of newbuildings fell within urban areas However, this relies on a simple view ofurban areas defined crisply as polygons By applying natural language-processing techniques to the national address file, Peter was able to create

con-a more subtle representcon-ation of the settlement pcon-attern of the U.K., whichsuggests that even more development is taking place in urban areas than thestandard analysis would suggest

Section I of Part II contains five chapters discussing the relationshipsbetween GIS technology and methods and policy making in public admin-istration from different perspectives

Chapter 10 by Isaac Karikari, John Stillwell, and Steve Carver emphasizesthat the implementation of GIS=LIS is not just a technical issue, but primar-ily involves people, organizations, and adaptation of the technology andworking practices to the local context This applies all the more in develop-ing countries where the projects are often parachuted by donor agencies andthen not followed up and maintained Hence this chapter makes theimportant point that technology transfer needs to be human-centered anddriven by local staff with the necessary technical and organizational skills.Couched within the broad theoretical framework of sociotechnical design,the authors describe the prototype GIS developed for the Accra LandCommission Secretariat as a way to elicit feedback from the staff of thatorganization and support the process of mutual adaptation between work-ing practices and technology

The relationship between technology and society is pursued further inChapter 11 by Sultan Barakat, Adrijana Car, and Peter Halls in the context ofpostwar reconstruction The quote by Moore and Davis that they refer to:

‘‘Tell me, I forget Show me, I remember Involve me, I understand’’ tures the essence of this chapter focusing on GIS and public participation

cap-in the reconstruction effort followcap-ing natural or man-made disasters,such as war The authors make the important point that reconstruction

is more about people and social relations than aid and material goods.Likewise technology has to fit the social processes and context but can alsooffer opportunities to foster dialogues and participation, and support the

multilayered decision-making process The authors then outline a ology that integrates the contribution of public participation GIS, spatialdecision support systems, artificial intelligence, and expert systems to de-velop a flexible and dynamic model of the postwar reconstruction process.This in their view would enable all the stakeholders to explore the potentialimpacts of alternative scenarios, increase informed dialogue, and supportthe achievement of consensus.

method-The organizational theme is pursued in Chapter 12 by Malcolm Borg andSaviour Formosa in describing their major effort in developing the NationalProtective Inventory of cultural artifacts in the island of Malta Malcolm andSaviour give an excellent account of this project that is of major significance

to improve accessibility and management of the rich historical heritage ofMalta, and from which many lessons can be learned for similar projects inEurope and beyond While the technologies deployed to create a spatialdatabase and make it accessible via Web browser are now mature for thiskind of project, and their opportunities are well illustrated in this chapter,what is particularly worth noting is the underlying major effort that hasbeen required to overcome the data hoarding tradition of public adminis-tration, and to develop a culture of data sharing This is a major challengethat applies to public administration throughout the world and certainly notjust to Malta

While the previous three chapters emphasized the organizational andcultural challenges of implementing GIS-based projects in public adminis-tration, Andrew Lovett, Julian Parfitt, and Gilla Su¨nnenberg in Chapter 13show the opportunities for policy making that arise from the development

of long-term partnerships between university-based researchers and localadministrations This chapter presents an interesting application of GIS toassess the likely impacts of different refuse collections and recycling strat-egies needed to meet government targets The case-study area is SouthNorfolk County, which has a well-maintained waste statistics database(what a rarity!) as well as a history of collaboration with the researchersbased in Norfolk From these premises, the methodology described in thechapter is of generic value for other similar types of applications andalternative strategy assessment, and is therefore of significant value.The final chapter in this section, by Mette Termansen, Colin McClean andHans Skov-Petersen, looks at how GIS can benefit another widely usedanalytical approach, discrete choice modelling This is applied to the mod-elling of recreational visits to forests in Denmark, using a random utilitymodel (RUM) with numerous parameters calculated using GIS Interest-ingly, the researchers found that the effect of distance on people’s choice

of site is not linear, as is often assumed, but is much stronger whenchoosing between nearby locations than when trying to decide betweenlocations that are all much further away A number of characteristics ofthe area around the forested area, not normally considered in this kind ofanalysis, were also significant, with people showing a marked preferencefor forests near the coast and in undulating topography The researchers

also developed a completely GIS-based approach but found that while thiswas much simpler to implement, it was not able to model the full range offactors as successfully as the RUM approach.

The last section of the book focuses on the opportunities and challenges ofinvolving the public through Internet-based spatial technologies, and otherinformation and communication channels The development of a sharedunderstanding among multiple stakeholders and the public of local context,problems, and opportunities is the theme of Chapter 15 by Derek Reeve,Erik Thomasson, Steve Scott, and Ludi Simpson These authors present anexcellent example of a Web-based participatory system designed with thelocal community rather than for the community in Bradford, England Thekey feature of the Maps and Stats system is the ability for users to generatesmall-area statistics for user-defined areas, which makes it stand out fromthe traditional approaches based on predefined administrative areas Aspersuasively argued by the authors, the increased control by users onwhat they can get out of this system is a prerequisite to engage the localcommunity and foster active participation The development of Maps andStats is another good example of partnership between the local authority,the university, and a not-for-profit community research center, and a modelfor others to follow

Chapter 16, by Tan Yigitcanlar, reviews the mix of technologies andmethods currently available to support public involvement and participa-tion The community-based Internet GIS he presents encompasses distancelearning modules, analytical modules built around a collaborative GISapproach, and specific modules to support strategic choice Web-basedarchitectures have now matured sufficiently to make the development ofsuch integrated systems robust enough for wide access and use The chal-lenge now, as recognized in the discussion of the case study in Tokyo, is toexploit the opportunities opened up by the technology This is not trivialbecause it requires overcoming the lack of interest shown by the public,limited vision of public authorities, and skewed availability of the know-ledge and skills necessary not only to physically access information andtools, but more importantly to be able to use them to support meaningfulparticipation

The final chapter of this section by Robin Smith takes a broader view ofpublic participation in the digital age and strives in particular to unpack theoften taken-for-granted view of public participation, which as we all know

is ‘‘good for you.’’ Building on a comprehensive survey of public authorityWeb sites in 1999, and a series of case studies, Robin makes the point thatdespite the increased opportunities offered by new information and com-munication technologies (well illustrated in the preceding chapters), thegap between the rhetoric in support of public participation, stakeholders’expectations, and outcomes is largely the result of our poor conceptualiza-tion and shared understanding of public participation itself To thisend, Robin articulates five components of public participation, reflectingdiffering theoretical constructs (notions), issues, audience, outcomes, and

methods By linking more clearly expected outcomes to the notions of publicparticipation held by the stakeholders, it is then possible to identify themethods most suited to engage the relevant audience on a specific issue.This is an analysis necessary before starting any public participation exer-cise Technology comes after theory, not before An important point alwaysworth keeping in mind.

Stephen WiseMax Craglia

Stephen Wiseworked in university computer services for 10 years, duringwhich time he chaired the group that negotiated access to ESRI software forthe U.K higher education sector and was part of the ESRC-funded Walesand South-West Regional Research Laboratory Since 1990 he has lectured inGIS at the University of Sheffield and is the author of a textbook on GISentitled GIS Basics He is currently a member of the GISRUK nationalsteering committee and an associate editor of the journal Computers andGeosciences

Max Craglia is the research coordinator of the Unit of the Joint ResearchCentre of the European Commission that has the responsibility for the tech-nical development of the Infrastructure for Spatial Information in Europe(http:==inspire.jrc.it) He is also the editor of the International Journal of SpatialData Infrastructures Research (http:==ijsdir.jrc.it) Before joining the JRC in

2005, Max was a senior lecturer at the University of Sheffield, teaching GISfor urban planners and researching areas of spatial data infrastructuredeployment and use, GIS applications for policy analysis, and data policy

Peter Bibby Department of Town and Regional Planning, University ofSheffield, Sheffield, United Kingdom

Malcolm Borg Ministry for Urban Development and Roads, Valletta,Malta

Paul Boyle School of Geography and Geosciences, University of

St Andrews, St Andrews, United Kingdom

Paul Brindley Department of Town and Regional Planning, University ofSheffield, Sheffield, United Kingdom

Adrijana Car Centre for GeoInformatics, Salzburg University, Salzburg,Austria

Steve Carver School of Geography, University of Leeds, Leeds, UnitedKingdom

Max Craglia DG Joint Research Centre of the European Commission,Institute for Environment and Sustainability, Ispra, Italy

Cheryl Craigs Centre for Reviews and Dissemination, University of York,York, United Kingdom

Daniel Exeter Section of Epidemiology and Biostatistics, School of lation Health, University of Auckland, Auckland, New Zealand

Popu-Robin Flowerdew School of Geography and Geosciences, University of

St Andrews, St Andrews, United Kingdom

Saviour Formosa Information Resources, Information and tions Technology, Malta Environment and Planning Authority, St FrancisRavelin, Floriana, Malta

Communica-Robert P Haining Department of Geography, University of Cambridge,Cambridge, United Kingdom

Peter J Halls Computing Service, University of York, Heslington, York,United Kingdom

Isaac Karikari Lands Commission Secretariat, Cantonments, Accra,Ghana

Young-Hoon Kim Department of Geography Education, Korea NationalUniversity of Education, Cheongwon, South Korea

Andrew Lovett School of Environmental Sciences, University of EastAnglia, Norwich, United Kingdom

Ravi Maheswaran Public Health GIS Unit, School of Health and RelatedResearch, University of Sheffield, Sheffield, United Kingdom

Ian Masser Taddington, Buxton, Derbyshire, United Kingdom

Colin J McClean Environment Department, University of York,Heslington, York, United Kingdom

Paul McKenzie University of Ulster, Coleraine, County Londonderry,United Kingdom

Victor Mesev Department of Geography, Florida State University,Tallahassee, Florida

Andrew Newton The Applied Criminology Centre, Department ofBehavioural Sciences, University of Huddersfield, Huddersfield,United Kingdom

Julian Parfitt Waste & Resources Action Programme, Banbury, UnitedKingdom

John Raymond Department of Information Studies, University ofSheffield, Sheffield, United Kingdom

Derek Reeve School of Computing and Engineering, University ofHuddersfield, Huddersfield, United Kingdom

Steve Scott School of Computing and Engineering, University ofHuddersfield, Huddersfield, United Kingdom

Ludi Simpson Cathie Marsh Centre for Census and Survey Research,University of Manchester, Manchester, United Kingdom

Hans Skov-Petersen Department of Forest and Landscape, University ofCopenhagen, Copenhagen, Denmark

Robin S Smith Informatics Collaboratory of the Social Sciences,University of Sheffield, Sheffield, United Kingdom

John Stillwell School of Geography, University of Leeds, Leeds, UnitedKingdom

Gilla Su¨nnenberg School of Environmental Sciences, University of EastAnglia, Norwich, United Kingdom

Mette Termansen Sustainability Research Institute, School of Earth andEnvironment, University of Leeds, Leeds, United Kingdom

Erik Thomasson Research Unit and Consultation Service, City ofBradford MDC, Bradford, United Kingdom

Richard Webber Centre for Advanced Spatial Analysis, Department ofGeography, University College London, London, United KingdomTom Kieron Whittington GIS and Planning Research Department, Savillsplc, London, United Kingdom

Peter Willett Department of Information Studies, University of Sheffield,Sheffield, United Kingdom

Tan Yigitcanlar Urban Research Program, Griffith University, Nathan,Queensland, Australia