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| FIGURE 1: GISOM External Organizational Diagram |
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Governmental budget expenditures have been increasingly constrained in recent years. Budget tightening, coupled with the requirement to do more with less has prompted governmental units to explore and develop innovative partnerships between multiple levels of government, the private sector and academe. Generating Information from Scanning Ohio Maps (GISOM) is a project that meets these demands. GISOM benefits from mutual cooperation between two levels of government -- federal and state -- plus the university community and the private sector. The GISOM project, which is being carried out by the Center for Mapping at The Ohio State University, realizes the United States Geological Survey's slogan "SHARE DATA SAVE DOLLARS." (USGS, 1996) GISOM, managed by the Center for Mapping, is a four-year analog to digital 7.5 minute topographic map conversion project. This paper examines interagency cooperation and sponsorship questions and reviews GISOM project objectives and methodology.
Historically, a significant percentage of the topographic data produced in the Unites States was produced under the exclusive purview of the United States Geological Survey National Mapping Division (USGS NMD). In 1987, the National Research Council's Mapping Sciences Committee (MSC) was established (Mapping Sciences Committee, 1994). Its goals were to provide advice and expertise on mapping and spatial analysis for the USGS. One of the concepts developed by the MSC was a blueprint for intergovernmental mapping partnerships. The MSC defined partnerships as a joint activity of federal and state agencies, involving one or more agencies as joint principals focusing on geographic information. It recognizes four key elements of a partnership -- shared responsibilities, shared costs, shared benefits, and shared control (Mapping Sciences Committee, 1994). Generating Information from Scanning Ohio Maps (GISOM) is a project that meets these objectives. GISOM has benefited from cooperation among two levels of government (federal and state) the university community, and the private sector. The GISOM project is managed by the Center for Mapping at the Ohio State University. It is a four-year project to convert from analog form to digital form, 7.5 minute topographic maps.
GISOM is a cooperative agreement, in accordance with Program Announcement Number 8080 - Assistance for Preparing Primary Series Digital Cartographic Data for the Public Domain -, between the USGS NMD, five State of Ohio agencies, (the Ohio Departments of Administrative Services (ODAS), Development (ODOD), Natural Resources (ODNR), and Transportation (ODOT), the Ohio Environmental Protection Agency (OEPA), an organization, the Ohio Geographically Referenced Information Program (OGRIP), and the Center for Mapping at the Ohio State University (Figure 1). The agreement specifies terms and conditions for analog to digital map conversion. The GISOM project converts five out of the nine cartographic categories contained in the USGS 7.5 minute topographic map series. The five categories are restructured into seven Digital Line Graph-3 (DLG-3) files: hydrography, hypsography, public land survey system, political boundaries, and transportation. The transportation category is separated into three files roads, railroads and miscellaneous transportation. GISOM illustrates the State of Ohio's commitment to digital spatial data acquisition through cooperation.
All partners involved in this cooperative agreement share either the cost and/or responsibility for DLG-3 conversion and storage and distribution of DLG-3 data. Every partner is minimizing its investment but maximizing its return. The CFM is coordinating and managing the GISOM project and is providing map conversion expertise. The USGS is providing one half of the funds for the GISOM project. Four state agencies are sharing the remaining one half of cost. OGRIP provides additional funding as needed and ODAS is providing ongoing support for data archival, maintenance and distribution. At the GISOM project's end the state of Ohio and the USGS will have a consistent and complete statewide DLG-3 spatial data coverage. The project will provide planimetric base data to support GIS analysis and mapping activities. DLG-3 Data will be available to the general public through either the National Digital Cartographic Data Base maintained by the USGS and/or the GIS Support Center maintained by the Ohio Department of Administrative Services. The GISOM project leaders determined that ODAS should be the steward of the GISOM data. The GISOM project is in its third year. It will take approximately four years to convert 793 quadrangles encompassing the state of Ohio. Approximately 350 quadrangles for the state are on-line and ready for use. The files may be obtained via FTP at europa.odn.ohio.gov
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| FIGURE 1: GISOM External Organizational Diagram |
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Dr. John Bossler, Director of the Center for Mapping, initially conceived of the GISOM project. His vision was to develop a comprehensive digital spatial data base map for the State of Ohio. In 1990, the Center for Mapping started a project to develop conversion methodology necessary to convert USGS 1:24,000 topographic paper maps into Digital Line Graphs. Dr. J. Raul Ramirez, Research Scientist at the CFM, led the initial research project. Several factors were responsible for the CFM's interest in a project of this scope. The first reason was the growing realization that accurate digital spatial data could be used to support decision-making in the state of Ohio. The CFM was also aware of the USGS's increasing interest in developing innovative partnerships with state governments wanting to share digital spatial data (GISOM Annual Report, 1994). In 1992 the USGS solicited proposals to establish cooperative agreements to convert 7.5 minute topographic series map data. The proposals encouraged partnership formation for the purpose of producing and/or converting USGS spatial data. The CFM started a pilot conversion project to produce DLG-3 files. The pilot project's goal was to test the CFM's ability to produce 112 DLG-3 files in a cost-efficient method. During this time it was necessary for the CFM to find partners in the state willing to support the cooperative agreement. CFM staff met with various government officials from counties, regional planning associations, and state agencies. Many groups were reluctant to support GISOM. Comments or reasons included: the 7.5 minute scale is not a good scale for our application, data is out of date and we do not have any use for it. Finally, a meeting was arranged with the Deputy Directors representing five state agencies. Directors agreed that this project would benefit the state of Ohio. GISOM would provide high quality, standardized data free of charge to Ohioans. GISOM data would support projects requiring consistent, highly accurate base category spatial data. Support for the GISOM data would minimize data duplication and redundancy. A federal/state/university/private sector partnership was formed and the GISOM project was launched in October of 1993.
The GISOM project could not have become a reality if it were not for the mutual trust, respect, cooperation and commitment of the partners at both the federal and the state level. The State of Ohio and the federal government, through the GISOM project, have formed an alliance of agencies and organizations committed to pooling resources for the conversion of reliable, highly accurate spatial data. Before GISOM involvement, many Ohio agencies regularly used USGS 7.5 minute topographic quadrangle data to support agency mandated projects. Agencies needed both paper and digital map data. When digital information was required, the agency often converted the analog map into a digital copy in-house. Projects were often confined to small geographical areas and digitizing specifications changed on a project-by-project basis. Over time, many agencies discovered that the same area had been digitized by other agencies (twice or even three times), each time for a different application. Data duplication of this type is extremely costly and cannot be supported in times of fiscal constraint.
The Ohio Geographically Referenced Information Program (OGRIP) started as an informal working group in 1989. In 1993, Governor George V. Voinovich formally established OGRIP as the umbrella organization to foster the use and development Geographic Information Systems (GIS) in the state of Ohio. OGRIP has served as a forum for spatial data users to engage in discussion about statewide spatial data requirements. Dialogue at OGRIP has encouraged agencies to become more familiar with each other's spatial data requirement. "Ohio, through OGRIP, has demonstrated that close cooperation among custodians of valuable geographic information and the users of this information contributes to advancements across a broad spectrum of agencies and institutions." (GISOM Annual Report, 1994). "The GISOM project is an excellent example of how OGRIP is serving Ohio." (GISOM Annual Report, 1994). Shared vision, resources, and cooperation have all contributed to the formation and successful implementation of the GISOM project in the State of Ohio. Each participating agency is currently using GISOM data to support decision-making. ODOT, for example, is using DLG-3 data to support Ohio's project planning for transportation infrastructure. ODNR is using the data to support land and water resource mapping for the state of Ohio. ODAS, in addition to its DLG-3 clearinghouse activities, targets state agencies that might benefit from DLG-3 data use. Finally, ODOD is using DLG-3 data to augment existing socio-economic data used to attract prospective businesses to Ohio.
The Center for Mapping at the Ohio State University performs research and manages GISOM conversion activities (Figure 2). The GISOM Project Manager integrates research and development and conversion supervision. The CFM also serves as the liaison between federal and state partners and the independent contractors.
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| Figure 2: GISOM Internal Organizational Structure |
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The USGS provides approximately one half of the funds necessary to expedite the conversion, the requisite base materials, software, DLG-3 standards, and support. Four of the five state agencies provide financial support in equal shares. The fifth agency, ODAS, provides hardware, software, and human resources necessary to archive and distribute DLG-3 files to the user community, and additional financial support is provided by OGRIP. The independent contractors perform the actual DLG-3 conversion effort.
Research and Development and Conversion Supervision personnel interact with USGS contact persons on a regular basis. Good communication is essential for smooth project coordination. The CFM hosted USGS officials on several occasions and CFM representatives have visited USGS National Mapping Headquarters. On-site visits provide a unique opportunity for each party to become better acquainted with facilities, conversion methods, and project objectives. Representatives of the CFM GISOM project and state agency contact persons meet on a quarterly basis at the Center for Mapping. The meetings are scheduled to maintain a continuous dialogue between all parties supporting the GISOM project. Budget reports, project status, and ongoing conversion research are addressed at the quarterly meetings. The meetings also provide an opportunity for all parties to address questions and concerns about the GISOM project. In addition to quarterly meetings, the Center for Mapping maintains regular communication with ODAS, the agency providing the DLG-3 storage and distribution support center. CFM staff and ODAS staff interact regularly and exchange status reports detailing quadrangle availability. ODAS and GISOM generated status maps, reports, and DLG-3 information are part of the public domain and are available to the public free of charge via FTP or on Compact Disk (CD). If the data are distributed on CD then there is a marginal media cost.
A typical management responsibility handled by CFM includes quadrangle scheduling. Representatives from ODNR, ODOD, ODOT, and OEPA submit quadrangle scheduling requests annually. Requests reflect each agency's internal priorities. The Center for Mapping tallies the requests and rank orders quadrangles. Ranking is determined by the number of requests made per quadrangle. A list of the most frequently requested quadrangles is compiled and provided to state agency contact persons for approval. If agencies do not approve, the list is recompiled reflecting agency input. If approved, the list is given to the USGS. The USGS checks the list to ensure that selected quadrangles are available. Quadrangles are sometimes unavailable because the USGS is revising the quadrangle. Once all parties are in agreement, the CFM places an order for quadrangles.
A primary goal of the GISOM project was the development of an innovative and cost-efficient DLG-3 conversion model. The CFM made two major modifications to the USGS system: utilize less expensive PC technology and perform heads-up digitizing based upon scanning technology. GISOM researchers ported and enhanced existing workstation-based USGS DLG-3 conversion software to the Personal Computer (PC) platform and developed new tools. The research team selected Intergraph Microstation PC as the Computer-Aided-Design (CAD) platform upon which to build its USGS DLG-3 based software (RETSAM_PC_CFM). GISOM hardware specifications include: 486DX-33 Computers with dual screen monitors, mouse, and 14.4 modems.
In addition to low-cost hardware and software solutions the CFM developed an innovative work-force model--the Independent Contractor model. The independent contractors are a diverse group: retired persons, students, and persons seeking part-time employment comprise the group. DLG-3 Data conversion requires knowledge that few persons in the general public possess. Individuals from the private sector were hired and trained by GISOM staff. The CFM developed an in-house DLG-3 data conversion training program. Training sessions were conducted on site at the CFM. Training required approximately six weeks. Training sessions used a combination of hands-on training and classroom-like instruction. Trained independent contractors are contracted by quadrangle. Currently, twenty independent contractors work in their homes - an electronic cottage industry in the making.
The CFM supplies Independent Contractors with DLG-3 conversion inputs. The inputs include scanned raster data, files for vector and attribute collection, a 7.5 minute paper quadrangle, a copy of the DLG-3 standards, and access to the mainframe at the CFM. Independent Contractors are notified via electronic mail when a quadrangle has been assigned. Independent contractors convert DLG-3 data and perform error checking for DLG-3 files. Support services, additional training, and DLG-3 quality control and quality assurance are available through CFM (Figure 3).
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| FIGURE 3: GISOM Current Production Methodology |
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The GISOM project is successful and the data are beginning to be utilized by Ohioans. Examples of use include but are not limited to:
These are but a few of the examples of how DLG-3 data are utilized in the State of Ohio to facilitate analysis and support decision-making. The GISOM project illustrates the benefits to be achieved when governmental units and the private sector cooperate and form innovative partnerships. A tremendous volume of useful spatial data will be generated by the GISOM's project end. Data duplication and redundancy will have been minimized if not eliminated and a data source common to all will have been generated.
I want to express my sincere gratitude to all persons who offered editorial comment and review for this paper. I especially want to thank Dr. J. Raul Ramirez who has provided me with immeasurable assistance for this paper and Dave Cunningham who snazzed up the diagrams. Finally, I want to thank the Center for Mapping for giving me an opportunity to participate in the GISOM project.
GISOM (Generating Information from Scanning Ohio Maps) Annual Report, 1994. Gore, Albert, Vice President, 1993. From Red Tape to Results Creating a Government That Works Better and Costs Less.
Mapping Sciences Committee, 1993. Toward a Coordinated Spatial Data Infrastructure for the Nation. National Research Council, National Academy Press, Washington, D. C.
Mapping Sciences Committee, 1994. Promoting the National Spatial Data Infrastructure Through Partnerships. National Research Council, National Academy Press, Washington, D. C.
McGarigle, Bill, 1995. Montana Develops GIS Clearinghouse. Government Technology, Volume 8, Number 7. Sacramento, California.
Osborne, David and Ted Gaebler, 1992. Reinventing Government How the Entrepreneurial Spirit is Transforming the Public Sector. Penguin Group, New York, New York.
Ramirez, J. Raul, 1995. Generating Information from Scanning Ohio Maps (GISOM): The Conversion Model for Generation of DLG-3 Files from 7.5' Quadrangles for the State of Ohio. 17th International Cartographic Conference, Barcelona, Spain.
U.S. Geological Survey -- National Mapping Information Home Page, "USGS National
Mapping Program Partnerships."