David Luhan

This paper discusses the process of system design, data development, distribution, and agency specific business practice revision, which implemented a viable G.I.S. at the local government level, for the City and County of Denver. This project accomplished the development of a centralized, City-wide, G.I.S. datasets, applications for maintenance and distribution, documentation of digital data standards, Interagency Service Level Agreements and a G.I.S. Strategic Plan to guide future G.I.S. development. The paper explores the importance of G.I.S. database design, management, and Interagency Service Level Agreements to provide quality G.I.S. information to multiple City agencies and the public.

The Citywide G.I.S. at the City and County of Denver applies a distributed approach to G.I.S. data development and maintenance, and a centric approach to G.I.S. data management and distribution. This approach integrates business functions, improves operations, leverages available resources, and shares consistent, quality, spatial information through the deployment of integrated information technologies.

Fundamental to a viable G.I.S. is the executive and City Council support, a G.I.S. champion at the Mayor’s cabinet level, departmental support, and the G.I.S. Steering Committee. Ongoing departmental administrative, legal, and financial commitment are essential to sustain the Citywide G.I.S. To develop and manage large amounts of G.I.S. information in a coordinated Citywide G.I.S. effort requires a sound technical approach, agency commitment to data stewardship, and inter-agency cooperation. The delivery of quality G.I.S. data and services requires planning, communication, coordination, standards documentation, and the ability to communicate technical solutions to departmental and agency managers and staff. Proper data management and ease of access, establishes confidence in the data, and promotes its use. The G.I.S. is a catalyst to coordinate citywide activities and facilitate planning and management decisions to improve the delivery of service to the public. G.I.S. is essential to the successful implementation of E-government initiatives at the City and County of Denver.

The initial data conversion project created an up-to-date base map through the complete data capture of the City Engineer’s quarter section maps. Using the base map as a reference, full data capture of the Assessment parcel maps is being completed. The information is organized using the ARCINFO region data structure model to manage the platted lots and blocks, deeds, ordinances, parcels, and rights-of-way. (Figure 1) High resolution, digital orthophotography, with special true-ortho correction to compensate for vertical displacement, was acquired in the spring of 2000. The imagery is used for data verification and the development of an up-to-date street centerline to support transportation related routing applications and to facilitate the location of activities by address. Integral to the data development was the cross-referencing of databases maintained by the City Engineer’s Office and the Assessment Division.

Using contractors for data development and in-house staff from the Citywide G.I.S. and the agencies for data verification, QA/QC procedures applied automated programs and agency- specific knowledge to resolve conflicts and promote data ownership. Data cleanup and issue resolution can require long hours of involved research, but is essential to create an accurate, well-understood product that can be used for decision making. Funding for these data development projects was provided by the agency responsible for the data and through cooperative inter-agency and inter-governmental funding agreements.

The development, organization, and maintenance of G.I.S. datasets require a well-defined development and implementation plan, complete with data standards. The plan that was developed included the coordination with existing and proposed Citywide I.T. programs and agencies. Unequivocally, the most important element is an enthusiastic, well-trained staff, committed to the quality assurance and control of hard copy and digital deliverables and ongoing data stewardship. Agency commitment at the executive level to technology and change was required before the data conversion proceeded. Roles, responsibilities, and expectations of the agency need to be well documented, understood, and accepted in a Service Level Agreement preferably before the conversion begins, since the conversion most often results in a business workflow change and increased accountability on the part of the agency.

In preparation for hardware and software purchases, extensive research and discussions with departmental I.T. network administrators was required. G.I.S. data transmission requirements, hardware and software requirements and compatibility, user access, security, system administration, and disaster recovery topics were discussed and agreed upon. Network benchmark tests and network monitoring were and still are being conducted to assess the technology infrastructure and guide equipment purchases. The Citywide G.I.S. uses Intel-based computers and is migrating to a cluster-aware server arrangement for the data development and maintenance server. The distribution server will be attached to the Citywide Storage Area Network (SAN) and user access will be coordinated through the Citywide I.T. Department. Building redundancy into the system is essential as the City moves their G.I.S. information and applications into a mission critical position. Ongoing database administration is required and is completed by the Citywide G.I.S.

The ArcView and ArcExplorer products are presently being utilized to view the G.I.S. information that has been developed. While this approach is not an enterprise solution the Citywide G.I.S. will implement, it does provide initial, easy access for users, and introduces them to G.I.S. concepts and information with very little initial customization. To date, programming effort has been placed on data maintenance applications and programs to perform QA/QC of digital data submittals. The update application will be revised to access ARCSTORM data layers in the near future. Integral to the development of the data maintenance application was agency input in the design and review process.

Managing user expectations and educating managers and staff about the importance of putting data development before application development can be difficult at times. Initially, the focus for the Citywide G.I.S. is on low investment applications that obtain a high return, eliminate duplication of effort, reduce the time necessary for document research, and increase efficiency within the agency. These include agency specific applications for City Engineering, Assessment, and Asset Management and the development of web-based, view, query, mapping, and data distribution applications using ARCIMS. Future web based applications will explore E-Commerce transactions for data distribution and sales. Presently, SDE and ORACLE are being used for data distribution. Application development for tracking permit activity, project coordination, and interaction with I.T. applications will also be included.

Each application begins with a user needs assessment and determines the data and products that are required. Integration with document imaging and agency databases reduces the costs of doing business and provides efficient customer service. Capitalizing on application functionality by understanding multiple agencies needs minimizes investment risk and avoids writing multiple applications that perform similar functions. Paramount to the use of the G.I.S. information is the on-going education and training of the users, support, and enhancement for the applications that have been developed.

Figure 1

Improving the delivery of services begins with the analysis of departmental mandates and responsibilities and requires the alignment of the G.I.S. with those directions and needs. This analysis began with agency interviews, documentation, and flowcharting of agency business functions and identified cross agency interactions. Through the review of this analysis, it became apparent where business practices could be streamlined to eliminate duplication of effort and increase information processing for more efficient customer service. Improved workflow coordination within and between agencies fosters communication and information sharing; however, implementing these changes requires continued agency commitment and willingness to change. Business reviews are beginning conducted throughout the City, but at this time, agencies with direct involvement with the G.I.S. include City Engineering and Assessment. The development and maintenance of an interagency project tracking database and implementation of workflow management software are topics that are being discussed. Interagency Service Level Agreements (SLA) for inter-agency communication are essential for a successful, distributed G.I.S. The SLA not only promotes stewardship of spatial information but also defines the communication protocol, roles, and responsibilities required for on going G.I.S. data maintenance. The SLA requires executive approval and includes provisions for business function revision.

As the G.I.S. unfolds its successes and more users are educated about the potential uses of G.I.S., requests for data, databases, and applications are becoming more prevalent. The Citywide G.I.S. coordinates agency data conversion projects and interaction with City I.T. plans. It provides standards and advice for data development and database design, and secures consulting services when required, to meet the daily information requirements of multiple agencies and the public. Application development for data maintenance, and agency agreements are required before the data conversion begins.

Working with the City Engineer’s office the Citywide G.I.S. has developed digital data standards for contractors submitting plans for review. Providing the contractor with a digital prototype drawing in AutoCAD and using in-house programs when required, has decreased the plan review time by more than half, through this digital review. In addition, the information can then be incorporated into the G.I.S. once it has been approved, thus saving time and money by eliminating the multiple ‘re-drawings’ that occurred before the G.I.S. was available.

The G.I.S. Strategic Plan is living document that is updated every two years. It is used to define the direction of the Citywide G.I.S. and assists in writing the G.I.S. strategic business plan. The G.I.S. Steering committee and the Manager of Public Works, with which the Citywide G.I.S. resides, review the document. The plan focuses on citywide initiatives and evaluates through agency interviews, the feasibility and criticality of the proposed project and the agency readiness to implement G.I.S. A strategic business plan and budget revisions are required each year and may include new or modified business operations based upon last year’s decisions and new requirements or expectations. Other documents that have been created and that are being utilized include: a digital data license agreement for digital data sales, inter-governmental agreements for data sharing, executive orders for internal G.I.S. data use and metadata tables that accompany all digital information.

The climb to G.I.S. development and implementation is a steep one. The performance measures that are used to measure successes include: the extent to which G.I.S. is used within the agencies to support daily business functions and the time savings that are experienced. The number of products and datasets developed, specific agency applications deployed, number of G.I.S. users, and data sales are also used to build support for the Citywide G.I.S. department.

David Luhan, G.I.S. Data Administrator

The City and County of Denver

Department of Public Works

City Engineering Department

200 West 14^th Avenue, Suite 303

Denver, Colorado.

Phone: 720-865-2670

Fax: 720-865-2676

Email: luhandf@ci.denver.co.us