GIS and Evidence-Based Policy Making - Chapter 12

12 Malta NPI Project: Developing a Fully Accessible Information System Malcolm Borg and Saviour Formosa CONTENTS 12.1 Introduction........................................................................................... 283 12.2 Setting the Framework: Integrated Heritage Management and Networking.................................................................................... 284 12.3 Furthering the Network: Heritage Management and Sustainability ................................................................................. 285 12.4 National Protective Inventory ............................................................ 286 12.5 Process.................................................................................................... 287 12.6 Heritage Management and the NPI................................................... 288 12.7 GIS Factor: Frontiers in Data Dissemination.................................... 289 12.8 Looking for a Comprehensive System.............................................. 290 12.9 Access ..................................................................................................... 292 12.10 Conversion............................................................................................. 292 12.11 Future of NPI......................................................................................... 294 12.12 Conclusions............................................................................................ 297 References ........................................................................................................... 297 12.1 Introduction This chapter examines the use of GIS and Web-mapping technologies in the implementation of a heritage management system (HMS). Its use as a tool to warehouse, analyze, and publish data in an integrated and user-friendly format is examined. The paper is based on a methodology used spanning the process taken from the analog archives to a Web-mapping product. The idea behind a digital national protective inventory (NPI) also referred to as an HMS, developed mainly on three fundamental ideals: accessibility, integration, and sustainability. In a country still synonymous with an obsession to hoard data, breaking through the accessibility barrier was 2007 by Taylor & Francis Group, LLC. seen as a major milestone, and also added the equally vital issues of inte-grating an information system and sustaining its upkeep. The issue of accessibility was based on the slow process involved in monitoring and assessing change on Listed* buildings through the planning process. The analog system of existing data-capture sheets in volume form and a developing GIS network at the Planning Authority (PA) were seen as the right elements needed to develop an integrated system (Gatt and Stothers, 1996). Integration was also desirable in the evaluation process especially in valorizing assets that involved properties with different heri-tage aspects namely: archaeological, ecological, and cultural aspects. The project also considered sustainability as a fundamental issue both in relation to financial and human resources. These elements are encapsulated in the EU sustainable cities principle of ecosystems thinking (Borg, 1999a,b). Once the integration process was completed, a dissemination phase was launched through the use of Web-mapping technologies and CD develop-ment that saw the previously inaccessible data converted to a simple information interface powered by HTML and JavaScript. 12.2 Setting the Framework: Integrated Heritage Management and Networking The possibilities for establishing a combined national HMS have been pur-sued through a joint Planning Authority=Museums Department working group (Borg, 2000). The Heritage Act (2002) paves the way for the integration of the scheduling process, and for addressing issues in a holistic and inte-grated manner through the establishment of a joint Heritage Advisory Committee with representatives of the PA, the Environment Protection Department, and the Museums Department (Borg and Magro Conti, 2000). Networking with the Environment Protection Department for monitor-ing, enforcement, and data gathering on natural habitats could also be strengthened. Such a system (required under the EU directives and the provisions of the United Nations Convention on Biological Diversity) could be further developed to include other environmental data with a geographical component, such as water and air quality data that could be more effectively linked with other spatial information for the elaboration of impacts, trends, and future scenarios. Recent changes such as the integra-tion of the Environment Protection Department and the Planning Authority into one organization, MEPA, will help to align the process into a stream-lined operating system. * Listed properties, sites, and assets include those which are protected by the Antiquities Protection Act (1925), within the Urban Conservation Area boundaries, and in the National Protective Inventory. 2007 by Taylor & Francis Group, LLC. 12.3 Furthering the Network: Heritage Management and Sustainability Sustainability and the integration of policy and action are key aims under-pinning much of EU legislation and policy. The conservation of architec-tural heritage and of urban or historic cores have a central place in the development of integrated environmental management strategies for sus-tainability. With regards to ecology and natural habitats the EU proposes standardization and sharing of data (through the EU Habitats Directive 92=43=EEC). The European Union and the Council of Europe provide the best guidance and parameters towards heritage management and conser-vation. Malta is already obliged to follow and implement certain conven-tions and charters because it has been in the forefront in signing these important documents. In view of this, the Museums Department is envisaging the application of such an information system and the upgrading of the inventories not only for availability within the Department but also for broadening accessibility. Another option discussed was the possibility of networking since both inventories for sites and properties housed at the Planning Authority, and also the inventories of collections* can be integrated creating a hub of information on national heritage assets. In October 2001, the Planning Authority in fact had made a proposal to integrate all systems in a drive to increase networking between the various entities responsible for heritage management. The partnership agreement signed by the Planning Authority, the Museums Department, the Malta Centre for Restoration, the Environment Protection Department, and the Restoration Unit (Works Division) for data access and sharing is a historical step which will see the building of a sustainable and integrated HMS which is GIS-based and covering the whole of the Islands’ resources. The agree-ment for Developing an Integrated Heritage Management System for the Maltese Islands—Online Networking—was based on the following prin-ciples of partnership: . To facilitate integrated heritage management . To promote sustainability . To promote networking . To encourage wider access to environmental information The integrated system will provide greater flexibility and dynamism in data compilation and processing, and in the development of inventories for * Collections refers to all assets gathered, stored, or exhibited in all the state museums in the Maltese Islands and these may vary from archeological, natural history, documents, fine art, or intangible heritage. 2007 by Taylor & Francis Group, LLC. natural and cultural heritage. Data accessibility will greatly assist in the processing of development applications, management of sites, preparation and review of local plans, formulation of development briefs, assessment of environmental impacts as well as the formulation of other policy documents by the Museums Department, the Environment Protection Department, and other Government entities. Monitoring and enforcement will be integrated and coordinated since all entities will have standardized data and access to all aspects of the NPI. The HMS is essential for conservation initiatives, monitoring of environmental quality, and restoration=rehabilitation. Effective sustainable management of resources requires more coordin-ation and cooperation between government departments and other bodies. This HMS will integrate expertise and data to create a shared hub, avoiding overlaps, duplication of work, bureaucratic faltering, and data redundancy in a field where oftentimes impromptu intervention is necessary. Sharing of data also limits the recreation of further voluminous inventories, and the digital system will compress all this data and facilitate expansion. GIS are proving to be the tools that have halted the seemingly perpetual cycle of recreating the data wheel. Networking between agencies is not only about the sharing of data. It is also important for management purposes. Streamlining and standardization are crucial in establishing modes of conduct, ethical approaches, and coord-ination on an official basis between the entities concerned. Legal boundaries will thus be limited by access and the sharing of a common field (Duff, 1999). It will also help clarify the remits and roles of the different entities. This, through specific access to data residing within a particular layer where a system of safeguards on layer access operates. A broader aim of the partnership is to increase public accessibility to the data. Environmental education is assuming greater importance, and the network should have a role to play in facilitating this. Similarly NGOs and other bodies with an interest in the cultural and natural heritage would be able to access a wider range of environmental and other information, aiding them in their contributions to positive action for the management of this heritage and enabling them to play a greater role in the planning process. NGOs also have, within their membership, persons with expertise who can validly contribute to enhance the information base of the participating partners in their development of the HMS. 12.4 National Protective Inventory The NPI will be of value when there is full availability to the broad range of business processes throughout the Planning Authority, spanning archival recording, development application, and policy making function. The Environmental Management Unit aided the development of the first phase 2007 by Taylor & Francis Group, LLC. of a geographical database system through the process of georeferencing storing of data and imagery scanning of each property. The GIS eventually provided a geographical link to all the property information within the same dataset, while the interface also allowed this data to be correlated with various other spatial datasets within the authority. The system maxi-mizes the availability of the NPI enabling a broad spectrum of operational staff to access the NPI online. The ultimate objective in this digitizing process is to increase availability of the system within the authority and establish a platform=inventory that could be later distributed=sold or act as a hub on a national level. The standardization of the system will be in line with Council of Europe’s report on a computerized heritage documentation center and Recommendation No. R(95)3 of the Committee of Ministers of Member States. This HMS will improve the scheduling process, monitoring of scheduled areas, zoning within urban conservation areas, delineation of UCA perimeters, and enforcement. 12.5 Process The NPI system has been developed since 1967. There were successive attempts in scheduling methodology. Although the system always followed criteria set by the Council of Europe (IECH), it was only after 1987 that the Malta Town Planning Services Division resumed the exercise of filling in the data-capture cards. In 1991 an expert from the Council of Europe reported on the situation. In 1992 a report was presented to the Council of Europe on Technical assistance for a computerized heritage documentation center in Malta; however, this system was never applied. Thedata-capturecardsinuseatthetimewereunfortunatelyrarelycompiled according to the standards proposed in the manual for the use of the research team assistants, prepared in August 1990, and the result of this exercise leaves muchtobedesired.Allthecardsarepartiallyempty(20%–50%)andsignificant data has been left out, e.g., architectural history, typological data, basic bibli-ography, legal data, ownership, and proposed utilization. The initial stages of the data-mining process required a considerable amount of scanning and data entry in order to capture the available data cards, many of which were in handwritten format. Thus the digitization process provided a base for the different data formats to be compared and integrated into one main information system, aptly named the HMS. Where problems were encountered, a system upgrade would also take into consideration the revision of these cards. This process may have provided a platform for the digitizing of each card; however, the data that was not compiled still has to be filled in. Considering that the analog phase of the project has been 35 years in the making, the digitization process was smooth to say the least, albeit having to 2007 by Taylor & Francis Group, LLC. ... - tailieumienphi.vn