Geographic Information System (GIS) Strategic Plan
7
GEOGRAPHIC INFORMATION SYSTEM (GIS)
S TRATEGIC PLAN
CITY OF TIGARD
November 2006
Financial and Information Services Department
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I see, as in a map, the end of all….
-Richard III, Shakespeare
Page
Introduction……………………………………………………………………………….. 3
Summary Report………………………………………………………………………… 5
Chapter 1 Background –GIS Concepts……………………………………………….. 16
Chapter 2 Preliminary Assessment……………………………………………………. 21
Chapter 3 Vision, Goals, and Objectives……………………………………………… 37
Chapter 4 Organizational Structure and Staffing…………………………………….. 45
Chapter 5 GIS Cost/Benefit Analysis………………………………………………….. 52
Chapter 6 Cost Estimate and Finance Strategy……………………………………… 69
Chapter 7 Schedule …………………………………………………………………….. 73
Chapter 8 GIS Work Plan Outline……………………………………………………… 74
References……………………………………………………………………………….. 92
Glossary………………………………………………………………………………….. 96
Appendices
Appendix A Communication Strategy…………………………………………………. 99
Appendix B Change Management Plan………………………………………………. 104
Appendix C Value Measure Methodology Results…………………………………... 105
Appendix D Current City of Tigard GIS Data Layer List 108
Table of Contents
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Overview
A Geographic Information System (GIS) is proven technology that has been in use for
several decades by many government agencies and other organizations as a decision
support tool and information management system. GIS provides the capability to collect,
manage, manipulate, analyze, and distribute information that is tied to a location, and it
layers that information in a map-based environment to provide a better visual image of
location, patterns and relationships. GIS is enabling and core technology that touches
numerous business processes, systems, data, and other applications. As such, it is an
integral part of the computing infrastructure that contributes to the success of a City’s
service delivery and operations.
Recognizing the importance of GIS, the City began using GIS in 1989, mostly within specific
departments, to support analysis and maintenance of its base maps. As the interest and
value of GIS capabilities became more apparent to more departments and the desire to
improve customer service and other business processes with GIS technology increased, it
was realized a strategic and comprehensive approach towards GIS was necessary in order
to truly achieve the efficiencies and benefits of such a system supporting all departments.
This GIS Strategic Plan will serve as a road map for the next three years allowing the City to
better leverage its GIS investments and to ensure future priorities for GIS technology and
related business processes are aligned with city-wide objectives. The implementation
portion of the GIS Strategic Plan consists of a standard development and deployment
methodology that will, when complete, achieve an enterprise GIS for the organization. The
five phase approach consists of the following:
This document represents the completion of Phase 1, of the GIS Strategic Plan and lays the
foundation in the form of a work plan for Phases 2 through 5.
Introduction
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List of Chapters
This document is organized into the following chapters:
Chapter 1 Background
Chapter 1 reviews general GIS concepts to orient the reader towards concepts,
topics, and subjects discussed throughout the plan.
Chapter 2 Preliminary Assessment
This chapter reviews the current GIS environment within the City of Tigard,
including issues, and trends, and opportunities.
Chapter 3 Vision, Mission, Goals & Objectives
Chapter 3 establishes the vision, mission, goals, and objectives for Tigard’s
enterprise GIS, including measures of success.
Chapter 4 Organizational Structure and Staffing
Chapter 4 reviews organizational planning issues associated with developing
an enterprise GIS, including staff requirements and roles and responsibilities.
Chapter 5 GIS Cost Benefit Analysis
This chapter provides an overview and analysis of tangible and intangible
benefits of GIS and evaluates forecasted GIS costs and benefits for the
organization.
Chapter 6 Cost Estimate & Finance Strategy
Chapter 6 includes a financial analysis of the implementation costs for the
initial enterprise GIS infrastructure.
Chapter 7 Schedule
Chapter 7 contains the overall enterprise GIS development schedule.
Chapter 8 GIS Work Plan Outline
Chapter 8 contains the preliminary work plan outline and corresponding major
task areas of the 5 phase development and deployment process.
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Sections covered in the Report Summary:
Synopsis
Introduction
Statement of Business Problem
Recommended Strategic
Initiatives
Intended Users
Vision, Mission, Goals,
Objectives, Measure of Success
Project Approach
Deliverables
Return on Investment
Financing Strategy
Contract Support
Project Staffing
Staffing Recommendations
Risks
Limitations
Synopsis
Governments depend on data to provide services to the community. Interestingly, a
large majority of this data is location-based. Computer systems that can manage
location-based information provide a unique geographic advantage.
There is wide understanding and acceptance within the City of Tigard that a Geographic
Information System (GIS) -a proven information technology, is essential to delivering a
broad spectrum of the City’s services involving location-based information.
What essentially remains is a road map to guide the organization to a successful
implementation of GIS. This document represents that road map in the form a three
year GIS Strategic Plan for the City of Tigard.
Introduction
A Geographic Information System (GIS) is defined as “an information system that is
used to input, store, retrieve, manipulate, analyze and output geographically referenced
data (location-based), in order to support decision making for planning and management
of land use, natural resources, environment, transportation, urban facilities, and other
administrative records.”
In the last decade, the City of Tigard has used GIS for mapping in Planning and
Engineering. However, until now, GIS has developed as these department’s needs
arose and the responsibility for development and planning of these systems as been
Report Summary
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generally limited to those departments. Additionally, the GIS application that has been in
use for nearly ten years is significantly past its end of lifecycle.
Up to this point, there has been no strategic direction for the development and
deployment of GIS technology, including a set of standards that facilitates developing
and sharing of information among departments and applications. Likewise, there exists
no defined means to identify and resolve technical and institutional barriers to successful
GIS deployment and to plan for technical, staffing, and organizational development as
well as the resources necessary to support GIS effectively.
The purpose of the GIS Strategic Plan is to assert a holistic approach towards the
utilization of GIS technology and to establish a unified vision for the organization to
further invest in GIS technology in an effective, efficient, and coordinated manner.
Statement of Business Problem
The City of Tigard’s GIS is an information asset and valuable decision support tool for
providing efficient government service to the community. The City’s investment in GIS
technology has been limited to department level activities, with essentially no corporate
oversight and strategic direction to adequately guide investment and improve business
processes. The result is that there are numerous redundant databases and work flows
that could be streamlined by the use of a city-wide GIS.
For approximately 10 years, the City’s primary GIS application MAGIC has provided staff
access to the City’s map base; however, the system is well past its end of lifecycle and
is in need of replacement. The system is based on old unsupported software and
programming technology. The older technology is also extremely inflexible in terms of
integrating with other business systems.
With a strong city-wide demand to improve work flow and business processes by
integrating map-based information with corporate business systems, the City is at an
important crossroad with its aging GIS technology. The City will continue to face
increasing costs to maintain an inefficient and outdated GIS with extremely limited
expansion capabilities serving only a couple of departments, or it can develop a city-
wide, or enterprise GIS, and institute an organizational model that is highly efficient; A
GIS that:
Provides a more efficient and cost-effective means for managing, maintaining,
and monitoring geographic data;
Improves access to the City’s geographic information, as well to other agencies
through data sharing opportunities;
Maximizes existing resources devoted to the management and maintenance of
geographic data;
Reduces repetitive and redundant maintenance of GIS related data;
Improves security, reliability, quality, and performance of GIS for staff and the
community;
Provides a corporate strategic direction for GIS investment and activities;
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Improves workflow in and between departments;
Integrates with existing and planned business systems;
Delivers GIS related services to the community that reduces cost and adds
value.
Recommended Strategic Initiatives
In order to accomplish an enterprise GIS and create a more efficient model for the City’s
geographic information, the following strategic initiatives are recommended:
Develop and Implement an Enterprise GIS Strategic Plan
A strategic plan is the guiding framework document for establishing the initial
vision, goals, objectives, requirements, and other parameters associated with
implementing an enterprise GIS.
Conduct a Pilot Project
Given the magnitude of the investment for an enterprise GIS and the timeline
associated with deployment of the technology, a pilot project is an excellent
opportunity to early on merge the planning stages with the implementation stages
of project development and provide a tangible product that will serve as a way to
educate stakeholders and build support for project.
Establish System Architecture Hardware/Software Environment
The foundation of an enterprise GIS is its architecture design, hardware
environment and suite of software. The system architecture should reflect the
needs and requirements defined in the strategic plan, including finding a suitable
replacement for MAGIC.
Develop Map Base
The foundation of the enterprise database is a map base and associated data
models. Databases can be the most time-consuming and expensive part of an
enterprise project. Development of a map base will require careful evaluation,
needs assessment, and prioritization.
Develop Standards and Procedures
A GIS is more than hardware, software, and data. It must also include standards
and procedures that enable the data and technology components of the system
to work consistently and efficiently. In a municipality with different departments
and varying GIS requirements, standards and procedures will be critical in
ensuring the system works correctly.
Web-based Mapping
The City’s current application for delivering mapping capabilities to employees
(MAGIC) is outdated and inhibits further integration. In order to ensure an
efficient integration with other business systems, use a standards based open
architecture development environment, and improve mapping services to the
community, a web-based mapping application is needed.
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Priority Application Development/Integration
The enterprise GIS will need to have the appropriate environment to allow the
system to be enhanced over time as systems are replaced or upgraded. This
environment should be flexible and low-cost to allow ease of integration.
Application development and integration capability need to be designed into the
system early on during the design phase. Initial application development and
integration efforts should focus on priority applications.
Develop Training Plan
The City will also need to develop a training plan so that the knowledge base
within the organization is at established levels and users receive the appropriate
amount of training relative to the level of interaction they have with the system.
Transition to Program
In an enterprise environment, a GIS cannot be implemented and left without
leadership, coordination, support, and the ability to develop the system. Some
level of program management will need to be established in order to ensure
continuing success, value, and operational efficiencies.
Vision, Goals, Objectives, Measures of Success
A critical element to developing an enterprise GIS is to establish a vision, followed by
measurable goals and objectives. Goals and objectives create a mutual framework for
stakeholders and will drive subsequent decision-making throughout the implementation
of the enterprise GIS. The vision statement and goals, objectives, and measures of
success were developed by the GIS Steering Committee and are contained within this
document. See the Goals and Objectives Matrix at the end of this summary. Refer to
Chapter 3 for the Measures of Success.
Intended Users of GIS
Under the enterprise model, GIS will be extended to a much broader group of users.
Essentially, all Tigard employees and the public will have some level of access to the
enterprise GIS. Depending on skill level, needs, and administrative rights, GIS will be
tailored to three basic groups. These include: Administrator, Analysts, and Viewers. The
Administrator accesses GIS primarily for system administration and data management.
The Analysts access GIS for high end map production, analytical work, and data
maintenance. The Viewers primarily browse GIS data performing queries, look ups,
report generation, and simple map production.
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Project Approach
GIS is often viewed as a technology solution, and while that is partially true, enterprising
a GIS involves considerable planning, designing, and development in order to realize the
benefits of such a system. It therefore takes more time and effort to successfully
implement. The GIS Strategic Plan identifies a five-phase approach to achieve an
enterprise system. Through this logical series of phases, all departments and relevant
business processes will be systematically evaluated in terms of their requirements and
needs for GIS as part of their work flow. From this a comprehensive solution will be
designed and implemented. The five phases include:
Deliverables
The enterprise GIS implementation will result in distinct deliverables. The following lists
the expected end products.
Base Map/Corporate Data Model
The base map generally consists of streets, parcels and other fundamental
layers. Because the base map will serve as the point of reference when creating
other spatial databases, it will have the highest level of accuracy requirements.
The corporate model will provide the overall spatial framework for how geospatial
data is organized, managed, maintained and collected within the City.
Software/Hardware
It is anticipated a suite of software and hardware will be necessary to
successfully deploy the enterprise GIS. While the City all ready has some
desktop application of GIS, the existing inventory will be evaluated in terms of its
ability to meet the business requirements found during the needs assessment
phase. Where there are gaps, new software will be required. In addition, it is
anticipated that hardware purchases in the form of servers will be necessary to
adequately store the centralized database.
Web-based Mapping
One of the anticipated major components of the enterprise GIS will be a web-
based application, or series of applications that will replace the current outdated
MAGIC application and deliver GIS functionality via the web. This includes
applications tailored for City staff as well as to the general public via the City
internet site.
Standards/Procedures
Promoting city-wide standards will ensure consistency, reliability, and quality in
the City’s GIS. Promoting procedures will ensure a consistent approach towards
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GIS data maintenance and application development and in the long run reduce
overall costs. Types of standards and procedures generally consist of metadata
standards, data development/maintenance standards, software standards and
application development environment standards.
Application Development Capability
It will not be possible to have all GIS requirements satisfied through “commercial-
off-the-shelf“ (COTS) applications; therefore, it will be necessary to establish an
application development environment to address additional requirements as new
systems are developed and requirements are updated. This application
development environment is anticipated to be one that is scalable and easily
customizable.
Training
A training program will be established in order to ensure an adequate GIS
knowledge base is established and continues as necessary for the organization.
The training program will be consistent with the proposed user groups
(Administrator, Analyst, and Viewer) as defined in Chapter 3.
GIS Program
After the initial enterprise deployment, GIS will transition into a program. The
program will help promote and coordinate the use of GIS technology, especially
those projects which are critical to improving overall efficiency and effectiveness
of business processes and city services. In addition, the program will help
departments with GIS development, standards, training, and guide overall
system performance.
Return on Investment
Implementation of an enterprise GIS will produce both quantitative and qualitative
benefits. The majority of the quantitative benefits will be time savings as a result of
streamlining business processes involving geographic data, allowing staff to focus on
other critical elements of their job duties while improving the delivery of services to the
community.
An analysis of the efficiency and effectiveness of a GIS implementation relative to
current business processes showed that a majority of they City’s business processes
would have a high likelihood of increased efficiency. As well, there are numerous
intangible benefits that cannot be immediately quantified in financial terms, but are
nonetheless of high value for the City. These include improved access to geographic
data, protection of assets, data security, and public safety, especially in regards to
emergency response.
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Proposed Schedule
Development and deployment of the core enterprise GIS is expected to occur over the
next 3 years. This assumes that the adequate funding is available for completion of the
components of the work plan.
Financing Strategy
The City’s assessment of the total three year cost to implement comprehensive core GIS
infrastructure is estimated at $759, 250. The proposed strategy involves an investment
spread out over three years, which will result in funding being available during the
course of the proposed project schedule (see Table below).
Once the three year investment period is complete, the GIS program will be integrated
into normal budgeting within the IT Division.
GIS COSTS FORECAST
Costs (1) FY06/07 FY07/08 FY08/09 FY09/10 FY10/11 Totals
Implementation
Phase 1 Strategy &
Planning
Phase 2 Analysis & Design
(Partial)
$125,900 $125,900
Phase 2 (Remaining)
Phase 3 Development
Phase 4 Deployment
$528,350 $528,350
Phase 5
Production/Operation $105,000 $105,000
Total Implementation
Costs $759,250
Maintenance (Program Costs)
GIS Program
$101,500
$122,790 $184,987
$215,536
$247,052 $871,865
Total Costs $227,400 $651,140 $289,987 $215,536 $247,052 $1,631,115
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Project Staffing
This year, Council approved the hiring of a GIS Coordinator to develop the City’s
enterprise GIS. This position will serve as the primary project manager/coordinator role
through the development and deployment of the enterprise GIS, and then transition into
a program management role once the system is in place.
During the implementation of the enterprise GIS, a Steering Committee will provide
review and input on key decision-making areas during the project. The Steering
Committee will be composed of department representatives. Members will meet once a
month during the project.
Contract Support
In addition to expertise and staffing within the City, technical expertise will be required
through contracting services to assist in some of the areas of needs assessment, system
architecture design, database development, application development, and deployment.
Cost of contract support is factored into the overall implementation cost estimate.
Scopes of work will stem from the GIS Work Plan (see Chapter 8).
Staffing Recommendations
To adequately provide support for the enterprise GIS, especially as it grows and
becomes more integrated with other business systems and processes, a GIS Analyst
position is recommended to be created and filled within 2-3 years. This position will be
critical in providing support in the functional areas of an enterprise GIS program
operation, including system support and application development.
Risks
As with any major technology deployment there are risks associated with the
implementation of an enterprise GIS. Fortunately, the City’s delay in investing in
enterprise GIS technology has put it in the position where it will not be developing
‘bleeding-edge’ technology. GIS technology is widely used and accepted, especially in
the Portland metropolitan area. There are a number of governmental venues for
support, both formal and informal, that the City can utilize during its implementation of
GIS. In addition, the technology the City will be investing in is based on standardized
programming languages, open architecture, and will be primarily Commercial-Off-The-
Shelf (COTS) software not requiring significant customization.
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Most of the risk the City will face will be of its own during development and management
of the system. These include:
Data Conversion Costs
Data conversion is usually the most expensive component of a GIS
implementation. Estimates in this Strategic Plan are based on limited review of
the current state of the City’s data, in particular Public Works utility data. The
Needs Assessment will provide a more accurate picture of the magnitude of the
conversion effort. If it is found that the data conversion or data collection effort
will be more considerable, then the cost-estimates may have to be refined.
Department Conflicts/Scope Creep
In the enterprise GIS model, one comprehensive system will be designed to
serve all departments. In such a model, there will inevitably be varying opinions
and conflicts in how the system is designed. While this is typical in any multi-
department endeavor, during the enterprise GIS implementation it will be
particularly important to manage the scope of work closely and develop change
management procedures to ensure there are not excessive delays, excessive
costs, or incidences of scope creep broadening the project beyond is original
intent.
On-going Support/Coordination Requirement
An enterprise GIS will not persist, and subsequently not provide the intended
return on investment, if it does not receive on-going management, coordination,
and staffing as identified in this document. The technology is expensive and can
provide significant cost-savings; however, it takes special and devoted personnel
to ensure the savings are obtained.
Complex Technology
While the front end of many GIS are becoming more simplified and easy to use
for the casual user, it is important to realize the technology behind the GIS is
becoming increasingly complex. The City will need to acknowledge that certain
skill sets identified in this GIS Strategic Plan will be required to keep the system
at a certain level of operation. If these skill sets are not available, then the
benefits again are likely not to be obtained. The GIS Strategic Plan will become
an important component in establishing the required skill sets to sufficiently
maintain the enterprise GIS (See Chapter 4 GIS Organizational Structure and
Staffing).
Limitations
The focus of the enterprise GIS will be on designing a system and program that meets
the needs of the City of Tigard. During the development process, there will likely be
various issues uncovered that deal with the broader aspects of the information
management and technology needs of the City, possibly related to GIS and possibly not.
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The enterprise GIS implementation, while comprehensive, cannot fully address all
information technology issues of the City.
In addition, rapidly changing technology can make plans obsolete before they can be
realized. Therefore, this report will provide a framework for a GIS implementation
strategy that will be flexible enough to change with the technology to the extent practical.
Furthermore, the enterprise GIS implementation will attempt to take the needs of all City
departments into consideration. Key data sources will be discussed and recommended
for data conversion and/or creation. Suggestions will be provided on ways that the City
can incorporate a wide variety of data sources into its GIS. However, in the end not all
data sources and GIS needs may be incorporated into the initial implementation.
Summary
The City does not need to be sold on the value of GIS as a new technology, having used
it steadily for over 15 years. Despite the successes so far however, the full utility for
what GIS can provide has not been fully realized up to this point. Aging systems, a lack
of data access, incorrect address information, duplication of efforts, lack of strategic
planning, and shifting priorities all characterize challenges of the current GIS
environment. All of these issues speak to a larger need for a results-oriented enterprise
GIS focus that can remain in place over a period of time to follow-through and deliver
results.
The Enterprise GIS described in this document will provide such a focus and help the
City to realize value from GIS technology beyond what any one department or individual
can achieve. In truth, the City has already come to realize the value of this message by
committing to the GIS strategic planning process and the development of this plan, a
logical first step. Great efforts have been exerted to compile and develop a truly
collaborative plan for GIS that has the consensual support of the individuals across the
city who will later be participate in the plan implementation.
The City has a unique opportunity before it to seize upon this momentum and develop a
GIS infrastructure that can be part of a suite of mission critical decision support tools.
The impacts that would be felt to core business processes, internal efficiency and citizen
service are unquestionably important and will have positive impact on City governance.
With Council support and approval for the recommendations in this document, the City
will have taken the next step towards realizing the full potential for what GIS can provide
to government and the community it serves.
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Graphic provided courtesy of Environmental
Systems Research Institute
Sections covered in this Chapter:
What is a GIS?
Spatial Data
Descriptive Data
The Geographic Data Model
Benefits of a GIS
Enterprise GIS Benefits
What is a GIS?
A Geographic Information System (GIS) is a computer technology that combines
geographic data (i.e., the location of features in our environment both natural and man-
made) and other types of descriptive information (e.g., names and addresses) to
generate visual maps and reports (Looney, 2000).
GIS stores information about the world as a collection of
thematic layers that can be linked together by geography.
The simple but extremely powerful and versatile concept
has proven to be invaluable for many problem solving
activities such as managing underground utilities, mapping
sensitive environmental areas, modeling the economic
impacts of development restrictions, and the planning cities
and regions.
A GIS enables a person to visualize patterns, relationships,
and trends. This process gives an entirely new perspective
to data analysis in map form that cannot be seen in a table
or list format. A GIS is not just about maps however; but
consists of a collection of hardware, software, data, skilled
personnel, and the methods to manage how the technology
is applied.
With GIS, one can:
Map where things are
Identify what exists at a certain location
Determine if certain conditions are satisfied
Map change over time
Discern spatial patterns and relationships
Conduct ‘what if?’ scenarios and model future conditions
Chapter 1 Background
DRAFT
Page 17 of 111 City of Tigard GIS Strategic Plan
Paula Abdul
1761 Millbrook Ln
Tonya Harding
1786 Millbrook Ln
Mark Bosworth
1765 Millbrook Ln
Eric Sten
1780 Millbrook Ln
Millbrook Lane
1765 Millbrook Ln Mark
Bosworth
1006
1761 Millbrook Ln Paula
Abdul
1005
1786 Millbrook Ln Tonya
Harding
1004
1780 Millbrook Ln Eric Sten 1002
Address Owner ID
Spatial Data
At the very core of a GIS is spatial, or geographic data. Spatial data is the
representation of the geography in our environment by modeling abstract forms, most
often in the form of features on maps.
Most of us probably take for granted our intuitive understanding of spatial data. For
example, when we unfold a road map, we know streets will probably be red or black
lines, that rivers will be blue lines or polygons, and that a
dot represents the location of something. In a GIS
environment, formal models govern the representation of
theses features and allow for a highly sophisticated
environment to store, display, analyze, and maintain that
information. This modeling is not limited to mapping
discrete features such as streets or rivers, but
encompasses other representations of geography
through such models of surfaces (e.g., slope) , networks
(such as a power system), images (an aerial photo), and
3 Dimensional (3D) models.
Descriptive Data
A distinct characteristic of GIS is its ability to store descriptive, or attribute data, related
to features presented on a map. In GIS you can have any number of attributes values
associated with features. For example, a tax lot on a map can have any number of
attributes associated with it, such as ownership information, zoning, and building value.
These attributes reside in a database table or can be accessed through links to other
databases. As an example, for the same tax lot it is possible to associate and link to
permit history of a site that may be stored in a separate database in another system.
This seemingly endless ability to link to descriptive business data to mapped features
give GIS an unparallel advantage to other information systems.
Spatial Data Tabular Data
GIS Map
Graphic provided courtesy of Environmental
Systems Research Institute
DRAFT
Page 18 of 111 City of Tigard GIS Strategic Plan
The Geographic Layer Model
As mentioned above, GIS stores information about our environment as a collection of
thematic layers. The layer concept is what provides GIS with its display capabilities and
extreme analytical potential, as it allows querying and analysis within and between layer
groupings. Layers are usually a collection of logical groups, such as utility information,
environmental information, and zoning
information. The GIS database stores both
the spatial data (where something occurs) and
the attribute data (characteristics of the data)
for all of the features shown on each layer.
This layer concept is especially valuable in
terms of organizing and managing large data
sets.
Benefits of a GIS
Information from a GIS lets you see patterns and relationships in geographic data not
usually seen in tables and lists. GIS provides insight to a place, helps you focus actions,
or helps you choose the best options. The benefits of a GIS are vast. The following are
some examples of the benefits a GIS.
Visualization & Analysis –Mapping Where Things are
Mapping where things are lets you find places that have the features you are looking for
and to see where to take action. For example:
Find a feature-People use maps to see where or what an individual feature is.
Discover patterns-By looking at the distribution of features on the map instead of
just an individual feature, you can see patterns emerge.
Map change/ predictive “what-if?” modeling- Mapping change allows you to gain
insight on behavior and subsequently anticipate future conditions and ask
questions about what if you change things –what will the change be?
Making Maps –Consistently & Efficiently
Making maps with GIS is much more flexible than traditional manual or automated
cartography approaches. A GIS creates maps from data pulled from databases. Existing
paper maps can be digitized and translated into the GIS as well. The GIS database can
be both continuous and scale free. Map products can then be created centered on any
location, at any scale, and showing selected information symbolized effectively to
highlight specific characteristics. A map can be created anytime, to any scale, over and
over for anyone.
DRAFT
Page 19 of 111 City of Tigard GIS Strategic Plan
Efficient Data Storage
In a GIS, tabular, or descriptive data, and the actual physical representation on a map
are incorporated together for easy access. One doesn’t have to have a hard copy map in
one drawer and a notebook with descriptions in another. Information is combined and
greatly improves analytical abilities, especially between data that traditionally may have
been stored separated, such as utility data and environmental data.
Communicate Information –Fast
We are visual people. We quickly understand information better when maps and graphs
are employed. Most people are more likely to comprehend something if it is in a map or
chart, rather than in a running table of data. Combine this with the fact that 80% of data
is located based (Wagner, 2006) and you have enormous opportunity to use maps as a
communication tool.
Make Better Decisions
The old adage "better information leads to better decisions" is true for GIS. A GIS is not
just an automated decision making system but a tool to query, analyze, and map data in
support of the decision making process. For example, GIS can be used to help reach a
decision about the location of development that has minimal environmental impact, is
located in a low-risk area, and is close to a population center. The information can be
presented succinctly and clearly in the form of a map and accompanying report, allowing
decision makers to focus on the real issues rather than trying to understand the data.
Because GIS products can be produced quickly, multiple scenarios can be evaluated
quickly, efficiently, and effectively.
Enterprise GIS Benefits
An enterprise GIS, by definition, is a centrally managed integrated, multi-departmental
system of components used to collect, organize, analyze, visualize, and disseminate
geographic information using a distributed network architecture. The basic idea of an
enterprise GIS is to address the needs of departments collectively instead of individually
through common standards, procedures, and methodologies.
How is an enterprise GIS beneficial? Basically it includes the above mentioned benefits,
but extends these capabilities to the entire organization. In an enterprise GIS,
geographic information is acknowledged as a corporate asset that needs to be closely
managed to ensure maximum efficiencies. For organizations the benefits of an
enterprise GIS translate into:
Improved operational efficiencies;
Economies of scale;
The ability to integrate geographic data seamlessly with other business systems;
The ability to streamline workflow;
Better accuracy, security, and integrity of geographic data;
DRAFT
Page 20 of 111 City of Tigard GIS Strategic Plan
Improved coordination amongst departments;
Improved distribution of geographic data;
Improved management of the system at a programmatic level.
DRAFT
Page 21 of 111 City of Tigard GIS Strategic Plan
Sections covered in the Chapter:
Current GIS Environment
Business Systems
Technology Environment
Business Processes
Issues
Opportunities
GIS Industry Directions
Architecture and Application
Choices
Other Cities
Recommended Strategic
Initiatives
Recommended Focus Areas
Project Organizational Structure
Current GIS Environment
Tigard began using GIS in 1989 to automate map production and improve its analytical
capabilities. The technology has, up to now, been used primarily in the Community
Development (CD), Engineering, and Public Works areas. CD uses GIS in long-range
planning projects, zoning maintenance, comprehensive maps and other planning
activities. GIS is heavily used in ad-hoc analysis and as a decision support tool. Public
Works uses GIS primarily to find scanned schematics via indexing grid layers in GIS.
Engineering assists in much of the daily maintenance of the data layers, such addresses
and utilities. The Police Department has also just recently purchased an ArcGIS license
to assist in analyzing crime data. Each of these departments has part time staff devoted
to GIS analysis and data maintenance.
Streamlined GIS functionality is available to most city employees via a customized
ArcView 3X desktop application called MAGIC (developed initially by Metro and
subsequently enhanced internally). There are a number of floating licenses available
which allow multiple users to access GIS data at once.
No business systems are integrated with the City’s GIS. Procedures for moving
business data into GIS and viewed via MAGIC usually involve manual exports (e.g. dbf
tables) and join functions within the GIS application. In addition, several static map links
are built into the MAGIC which allow users to view other business data on scanned
images.
The current GIS within the City is a decentralized “department specific” model with each
department responsible for maintaining their own data, developing their own standards
and procedures, and managing their own personnel resources. Files are stored in a
file-server environment as well as some individual desktop computers.
Chapter 2 Preliminary Assessment
DRAFT
Page 22 of 111 City of Tigard GIS Strategic Plan
Business Systems
The City of Tigard uses several different independent business systems to perform
various city functions. These systems have evolved over time to serve primarily
department specific activities. They include:
Finance System
The Finance Department uses Springbrook to manage its financial system.
Permitting System
The Community Development Department uses Tidemark Software (Accela, Inc.) to
manage its permitting system for building and planning. The Community Development
Department is currently evaluating the feasibility of moving to Accela.
Public Works System
The Public Works Department uses various modules of Hansen to support public works
functions. Hansen data has been recently migrated into a SQL database.
Integration with GIS
Integration of GIS with each of the above mentioned systems is possible; however there
are numerous factors affecting the integration that will need to be assessed before
design work. For example, while different third party vendors have developed GIS tools
to integrate with these different business systems, the City may elect to use
standardized development tools to build the interface with GIS so that the cost of
integrating with each system is reduced once a standard template is developed. A
thorough assessment of the integration capabilities and opportunities with the business
systems with GIS will occur during Phase 2.
Technology Environment
GIS Software
The City presently uses ESRI software and intends to continue use this software suite.
Other third party supporting applications (such as those that work with ArcIMS) will be
considered for their compatibility with ESRI as well as other City systems.
Computer Aided Drafting
Community Development/Engineering uses AutoDesk 2002, 2006 Land Development
Desktop and Civil Design for reviewing projects from consultants, street designs, public
improvements, and checking of plat boundaries and other surveys. The Development
Review Division within Community Development uses AutoDesk for the maintenance
and assignment of addresses within the city. The Public Works Department uses CAD
DRAFT
Page 23 of 111 City of Tigard GIS Strategic Plan
for maintenance of the city owned facilities. (e.g., floor plans, location of electrical, HVAC
systems).
Document Management
The City does not have a document management system in place, but is in the process
of a needs assessment. Implementation is expected to occur during FY 07/08.
Database Management System
The City uses both Oracle and SQL Server databases and is in the process of moving
databases from Oracle to exclusively SQL so the one relational database management
system is used.
Web
The City has a support internet and intranet system.
Computers
The City is moving to primarily Dell computers with MS Windows 2000 and XP.
Business Processes
The city conducts numerous businesses processes in order to fulfill its duties of
operating a municipality for the community. A significant number of these business
processes involve the use of geographic data.
Below is a table identifying existing business process within the City along with the
corresponding departments that potentially could benefit from use of the information.
This list is meant to be a starting point and will need to be refined as the project moves
forward, especially during the Needs Assessment phase. In addition, as this list is
extensive it is likely that some priority mechanism will need to be used in during the
initial development of core GIS infrastructure so that priority business systems are
addressed first related to the enterprise GIS schedule and budget.
The circle indicates that the Department has an interest in the business process. Note
that the business processes often cross departmental lines, thus multiple departments
need to be involved when evaluating the particular business process.
DRAFT
Page 24 of 111 City of Tigard GIS Strategic Plan
Business Processes Involving GIS
Business Processes Eng
Pub
Work
Com
Dev
PD Lib Admin Fin Other
Infrastructure
Address System
Critical Private Utility &
Other Agency Utilities
Drawing/Document Mgmt.
Facilities/Asset Mgmt.
Parks Management
Parking Management
Pavement Mgmt.
Street System
Utility Mgmt.(water,
sanitary, sewer)
Planning
Demographics/Business
Geographics
Land Use Planning
Permitting/Development
Review
Transportation System
Plan
Environmental
Environmental Mapping
Services
Community Policing
Crime Analysis
Crime Prevention
Disaster/Emergency
Planning & Response
Library Services
Police Patrol
Public Safety
Traffic Accident
Monitoring
Traffic Monitoring
Urban Forestry
Administration
Finance/Utility Billing
GIS System
Administration
DRAFT
Page 25 of 111 City of Tigard GIS Strategic Plan
Issues
In a preliminary assessment of the City’s potential to move towards an enterprise GIS
model, current department use of GIS as well as the City’s approach to managing
geographic data were evaluated. The following summarizes some of the key issues.
The city’s GIS can be characterized by islands of information which have
developed along departmental lines. As in many other businesses, the City’s GIS
evolved based on department needs rather than on a city-wide basis.
Consequently these isolated islands of data exist in individual departments of an
organization and prevent true integration and sharing of data. There is redundant
data maintenance between systems;
The City’s primary GIS application MAGIC is well past its end of lifecycle and is
in need of replacement. The system is based on old unsupported software and
programming technology. The older technology is extremely inflexible in terms of
integrating with other business systems.
The City’s GIS system cannot currently support an enterprise (or organization-
wide) GIS, which is necessary to integrate most of the major City systems related
to permits, police, finance, emergency operations, library, asset management,
and work orders, as well as providing commercial and residential customers with
improved customer service via a map-based interface on the City’s web site;
There is no city-wide strategy for developing, organizing, managing, and sharing,
geographic data;
Further attempts to integrate GIS under the current model would further
perpetuate this uncoordinated approach towards the management of this
valuable information resource;
The island of information problem greatly inhibits the effectiveness of GIS and
relational databases. GIS and relational databases inherently provide a common
database environment and geographic frame of reference for data sharing, but in
the case of Tigard, the islands of information often prevent effective information
sharing and result in operational inefficiencies;
The City’s GIS is a combination of old and new technology. The older
technology uses outdated programming and supported software;
The City of Tigard business processes and systems have generally evolved to
serve specific department needs and are thus fairly isolated and independent of
one-another;
No city-wide plan or strategy for the other business systems is in place;
Separate databases and department-centric system planning have resulted in
data redundancies, in particular addressing data;
Current GIS formats used by the City of Tigard are incompatible with other
business data. The City’s ability to share information across departments. In its
DRAFT
Page 26 of 111 City of Tigard GIS Strategic Plan
current configuration, the City’s GIS makes use of outdated formats and/or
systems, several of which are no longer supported by vendors;
The current decentralized GIS contains numerous inefficiencies and
redundancies that could be reduced or eliminated through a centrally-managed
GIS.
Opportunities
Although there are numerous issues that will need to be addressed related to moving the
City towards an enterprise GIS, there are also opportunities which will facilitate its
implementation. These include:
There is a strong interest amongst departments to incorporate GIS with other
business systems and processes;
Management currently supports migrating the City’s department-centric GIS to an
enterprise GIS model;
Minor legacy integration/disparate applications. The department specific
evolution of GIS over the years has been limited to ESRI products and
integration with other system has been nonexistent, therefore as GIS moves
towards an enterprise system, ‘undoing’ legacy systems should not be too
problematic;
Integrating Technology. The integrative power of newer GIS applications can
greatly reduce costs resulting from operational inefficiencies;
There is opportunity to re-evaluate and streamline existing business process
related to the development, use, integration, storage, and retrieval of GIS data;
Standardized Architecture. An important component of the newer GIS
technology is the ability store data in a relational database. This technology
holds a promise for better management of data. Additionally, standardize
programming using MS COM based development languages such as Visual
Basic (VB) will provide better long term development solutions. Furthermore,
both relational database management systems, object-oriented programming,
and Web-based systems can provide data management and programming
standards and help overcome data sharing problems;
There is great potential to improve customer service, especially via the City’s
web site. Currently online GIS consists of static maps, some of which are not
regularly maintained. There is a great potential to link GIS with other City
services (e.g., permitting, crime data, utility info, transportation, community
services) and improve customer service;
There is potential to establish GIS as a component of the services provided by
the Library (e.g., educational, research, general querying);
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There is potential to improve EOC (Emergency Operations Center) by providing
better access to on-line and real-time mapped based information. This became
very apparent at the recent emergency drill back in June.
Idea sharing. Several other jurisdictions in the region have implemented
enterprise GIS. There are opportunities to learn from these jurisdictions about
their experiences to help ease our introduction to the change;
Accepted technology. There is opportunity in that the enterprise model and
technology planned for implementation is accepted technology and built on
standardized architecture, thus risk is low.
GIS Industry Directions
GIS is a rapidly growing and transforming type of information system. Its roots began as
a system that was primarily workstation based, isolated from other business systems.
Over the last ten years, it has changed significantly and is now closely linked to the rapid
growth of other information technology industry trends and a maturing, but still very
dynamic industry. Some of these directions will play an important role in easing and
facilitating the introduction of an enterprise GIS for the City of Tigard. These include:
Improved Usability of GIS
The general trend of GIS development seems to indicate that it is becoming more usable
and dispersed in organizations, both pubic and private sectors. Traditionally GIS started
in individual departments and served specialized functions. GIS applications required
highly trained staff to operate. In recent years with the growth and maturity of GIS, it has
become easier to use, more intuitive, more analytical, and more embedded with a variety
of technologies, thus has become much more usable to a broader set of disciplines as
well as businesses processes.
Enterprise Integration
With the growth of GIS, organizations have had to make critical business decisions in
how to incorporate GIS in the larger context of the organization’s information technology
strategy. Increasingly GIS is being valued as integrating technology and a central piece
of core technology that should be available to all users. As a result, GIS is assuming
more of an enterprise role in organizations.
Standardization & Interoperability
Standardization is the reason for the success of the Internet, the World Wide Web, e-
Commerce, and the emerging wireless revolution. The reason is simple: our world is
going through a communications revolution on top of a computing revolution.
Communication means "transmitting or exchanging through a common system of
symbols, signs or behavior." Standardization means agreeing on a common system
(ArcNews Online, 2000).
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Service Oriented Architecture
Although not specific to GIS, Service Oriented Architecture (SOA) is closely linked to
much of the explosion of interoperability and web-based GIS applications. In computing,
the term SOA expresses a business-driven approach to software architecture that
supports integrating the business as a set of linked, repeatable business tasks, or
"services". Services are self-contained, reusable software modules with well-defined
interfaces and are independent of applications and the computing platforms on which
they run. SOA helps users build composite applications, which are applications that draw
upon functionality from multiple sources within and beyond the enterprise to support
horizontal business processes. SOA helps businesses innovate by ensuring that IT
systems can adapt quickly, easily and economically to support rapidly changing
business needs. SOA is largely based on a set of Web services standards (e.g., using
SOAP or REST) that have gained broad acceptance over the past several years. These
standards have resulted in greater interoperability and avoidance of vendor lock-in. One
can implement SOA using any service-based technology (Source: Wikipedia).
GIS on the Web
GIS will continue to become more web-based. Improvements in Internet speed, cost
and availability have brought about innovations in Web site technologies, such as the
use of Asynchronous JavaScript and XML (AJAX), image tiling for 3D visualization, and
continuous scrolling. Such technologies are improving the usability and response times
of Internet sites and are an attempt to bring browsing more inline with the desktop
experience (Mitchell, 2006).
Mash-ups
A mash-up is a website or web application that uses content from more than one source
to create a completely new service. Content used in mash-ups is typically sourced from
a third party via a public interface or API (Source: Wikipedia). Interestingly, the word
mash-up is derived from a method in the pop music industry whereby a song is created
by fusing elements from other recordings (Merrill, 2006). Mash-ups are revolutionizing
web development and will influence the way maps can published on the web, especially
involving third party vendors, such as Google Earth.
GIS Data in Relational Database Management Systems (RDBMS)
Early GIS data was stored primarily in proprietary file formats. As the industry change to
more open systems, the relational database management system has emerged as the
preferred way to store GIS information, primarily because of the open architecture
standardization, and ability to integrate with other databases.
GIS Integrated with Business Systems
GIS is increasingly being embedded into other business software, significantly reducing
programming costs for spatial analysis of data. Financial, customer, property, asset, and
maintenance data for example, which is generally captured in other corporate systems,
is now being integrated with the GIS.
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Unprecedented Access to GIS Data
GIS data availability is rapidly growing for GIS data users. In the early years of GIS,
data was available in proprietary formats and not easily shared between governments
and businesses. With the proliferation of personal computers, use of the Internet and
standardization of GIS data formats, access to GIS data has become much easier and
widespread. Many governments and private businesses post data on web sites for
download and consumption, either for free or for a fee.
Emphasis on GIS ‘Management’
Increasingly, the emphasis is on GIS management and the accompanying tools to
analyze organizational work flow, to model the GIS data flow and analysis, and to
implement systems that are fully integrated with the strategic objectives of the
organization. This kind of emphasis requires a more corporate management oversight
with responsibility usually in a department that is neutral and traditionally in a support
role, such as an IT department.
Mobile GIS
Wireless technologies combined with the previously discussed Web-enabled GIS are
allowing spatial data to be moved into the field and used in many ways, such as feature
finding (e.g., utilities), field editing of data, and routing.
Broad Public Acceptance & Knowledge
Although an acronym not widely known or used, GIS has been a driving force behind
much of the mainstreaming of web-based mapping found today on the internet. Web
sites like Map Quest and Google Earth deliver GIS functionality, but largely without the
average user knowing what GIS really is. This has been a big boost for the GIS
community and has had positive side effect in that it has raised the public’s awareness
and acceptance of finding information via a mapping interface. And not only are map
interfaces becoming more accepted for obtaining information, but collectively the public’s
skill level has been raised. Simple functions like pan and zoom and the ability to
navigate in a map-based environment are becoming part of the collective knowledge
base of users, furthering to help boost GIS as a common accepted information tool.
Architecture & Application Choices
The move to the enterprise GIS model will provide the opportunity to take a fresh look
and evaluate system architecture and software applications. The City’s current GIS has
evolved incrementally over time without any comprehensive assessment of a system-
wide architecture. With a well designed system of hardware and software, the City will
be able to have the greatest flexibility, scalability, and efficiency in terms of providing
sustainable GIS services into the future
While the system design will be completed in conjunction with the user requirements and
needs assessment, there are some technology choices that, given the state of the
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industry, are likely be deployed at the City as part of its enterprise GIS implementation.
These include the following:
Suite of Software
With the enterprise model, GIS will be available to a large group of people with varying
knowledge and skill levels; therefore the applications provided need to reflect the needs
and abilities of the target groups. The best method for delivering the “right tool for the
right job” is to have a suite of software. ESRI, the preferred GIS vendor, has a diverse
range of GIS products that can work well out of the box with a wide range of users, and
can be custom tailored to meet individual needs. This includes high end data
maintenance, analysis, and map production as well as casual querying and look-up.
ESRI is currently the City’s GIS software vendor.
Web-Based Mapping
Probably the most visible side of GIS is GIS that is web-based. Web-based mapping
has allowed for a significant advanced in the ability to deliver light-weight mapping
functionality (thin client) to a large audience at a relatively low cost. With web-based
mapping:
User software requirements are minimal. Users only need to have a web
browser.
Networking requirements are minimal. Users only need to have a standard
Internet connection to use a web application.
Application software and settings can be maintained on a central server and
published out to users, thereby eliminating the need to install, configure, and
maintain application software and settings on each user’s computer.
Centralized Data
Centralizing GIS data is the foundation of the enterprise GIS model and will be a critical
part of the success of the City’s enterprise GIS. Having the data in one location is a
more efficient way to store and manage large quantities of data and streamlines
management and reduces data maintenance redundancies. Users no longer have to
wonder if they are using the most current version. The centralized management also
allows for other enterprise GIS objectives to be administered, such as data integrity,
security, accuracy, and reliability.
Geodatabase
Accompanying the centralized data model is the emergence of storing and managing
GIS data a relational database management system (DBMS). While DBMS’ are not
new, GIS data has only recently started the migration towards being managed through a
DBMS. This has been due to the complexity of geospatial data, the models used to
build GIS data, and the legacy of the proprietary formats that most GIS data was built on
in the last two decades. Additionally, effective integration of GIS data with other
business systems requires that data be stored in a DBMS. Migration of GIS data to a
geographic database (geodatabase) is one of the most common activities being
conducted by municipalities both in the region and nationally.
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Other Cities
During the development of the strategic plan, two nearby cities were evaluated for best
practices and implementation of GIS. These cities were evaluated to see how effective
a corporate GIS model is within their municipality.
Oregon City, Oregon
Oregon City has a partial enterprise GIS. They use a combination of applications to
deliver GIS to city departments. Their primary internal application is a desktop
application called City Works by GeoNorth. It provides basic mapping capabilities and
includes functionality such as address labeling and a document query tool. The City
uses GeoCortex on their public web site. They have customized the application with
numerous additional tools. The GIS home page is a well designed web page with
access to a variety of information including the interactive map, static maps, custom
reports. It is also integrated with other business systems such as the City’s permitting
system.
Oregon City’s approach to implementing GIS has been incremental, involving developing
basic tools to improve work flow and save on staff time. They have then used these
basic tools to build other applications. Other departments have observed the efficiencies
made possible through these GIS tools and have help fuel interest in developing more
applications. The City’s GIS is located within the Community Development Department
and provides GIS services to all City departments.
Oregon City, GIS Staff & Related Staff
Position Number of FTEs
GIS
GIS Coordinator 1
GIS Analyst 1
Hillsboro, Oregon
The City of Hillsboro has a GIS program located within their Information Services
Department. The GIS operates as an enterprise GIS. Multiple applications are used by
the City to provide mapping capabilities to City staff, including a similar MAGIC
application and an ArcMap based application (Utility Viewer). In the near future,
Hillsboro will be migrating to MapOptix for their internal browser and will also use Multi-
Map as a tool for publishing maps and reports on their external web site.
Hillsboro, GIS Staff & Related Staff
Position Number of FTEs
GIS
GIS Coordinator 1
GIS Analyst 3
GIS Related
Database Administrator 1
Systems Analyst 2
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Recommended GIS Strategic Initiatives
From the preceding chapters, it can be concluded that GIS is an information asset and is
a valuable tool for providing efficient government service to the community. It can also
be concluded that to date the City’s investment in GIS technology has been limited to
department level activities, with essentially no corporate oversight and strategic direction
to guide investment and improve business processes. Additionally, existing technology
and processes for maintaining the City’s current GIS are inefficient and outdated and
generally limited in its ability to integrate with other corporate business systems.
With a strong city-wide demand to improve customer service, work flow and business
processes by integrating map-based information with corporate business systems, the
City is at an important crossroad with GIS technology. The City needs to develop a city-
wide or enterprise GIS, and institute an organizational model that is highly efficient; A
GIS that:
Provides a more efficient and cost-effective means for managing,
maintaining, and monitoring geographic data;
Improves access to the City’s geographic information, as well to other
agencies through data sharing opportunities;
Maximizes existing resources devoted to the management and maintenance
of geographic data;
Reduces repetitive and redundant maintenance of GIS related data;
Improves reliability, quality, and performance of GIS for staff and the
community
Provides a corporate strategic direction for GIS investment and activities;
Improves workflow in and between departments;
Integrates with existing and planned business systems;
Delivers GIS services to the community that reduces cost and adds value.
In order to accomplish an enterprise GIS and create a more efficient model for the City’s
geospatial data, the following initiatives are recommended:
Develop and Implement an Enterprise GIS Strategic Plan
A strategic plan will be the guiding framework document for establishing the initial
vision, goals, objectives, requirements, and other parameters associated with
implementing an enterprise GIS.
Conduct a Pilot Project
Given the magnitude of the investment for an enterprise GIS and the timeline
associated with deployment of the technology, a pilot project is an excellent
opportunity to early on merge the planning stages with the implementation stages
of project development and provide a tangible product that will serve as a way to
educate stakeholders and build support for project.
Establish System Architecture Hardware/Software Environment
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The foundation of an enterprise GIS is its architecture design, hardware
environment and suite of software. The system architecture should reflect the
needs and requirements defined in the strategic plan.
Develop Map Base
The foundation of the enterprise database is a map base and associated data
models. Databases can be the most time-consuming and expensive part of an
enterprise project. Development of a map base will require careful evaluation,
needs assessment, and prioritization.
Develop Standards and Procedures
A GIS is more than hardware, software, and data. It must also include standards
and procedures that enable the data and technology components of the system
to work together efficiently. In a municipality with different departments and
varying GIS requirements, standards and procedures will be critical in ensuring
the system work correctly.
Web-based Mapping
The City’s current application for delivering mapping capabilities to most
employees is outdated and inhibits further integration. In order to ensure
adequate integration with other business systems, work with a more open
architecture standards based application environment, and improve mapping
services to the community, a web-based mapping application is needed.
Priority Application Development/Integration
The enterprise GIS will need to have the appropriate environment to allow the
system to be enhanced over time as system are replace or upgraded. This
environment should be flexible and low-cost to allow ease of integration.
Application development and integration capability need to be design into the
system early on during the design phase. Initial application development and
integration efforts should focus on priority applications.
Develop Training Plan
The City will also need to develop a training plan so that the knowledge base
within the organization is maintained and users received the appropriate amount
of training relative to the level of interaction they have with the system.
Transition to Program
In an enterprise environment, a GIS cannot be turn-keyed and left without
leadership and coordination. Some level of program will need to be established
in order to ensure continuing success and operational efficiencies.
Recommended Initial Enterprise Application Focus
Areas
As part of the initial enterprise GIS deployment involving the recommended strategic
initiatives, there are specific key application development areas that need to be
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considered initially. These areas will help establish the critical GIS foundation, affect the
largest set of business processes early on, and are likely to provide the most ‘bang for
the buck’, as well as provide a very visible and tangible product to end users. The
development areas identified below are preliminary, but provide good indication of the
likely areas of focus given what is know about the current environment. The Needs
Assessment will help provide more definition of the focus areas.
Replace MAGIC with sustainable, scalable, enterprise oriented development
environment
MAGIC is currently the de-facto enterprise application for basic map look ups and
querying within the City. It contains a substantial amount of built in custom
functionality that is used routinely by City staff. Most of the functionality will need
to be transferred to a new sustainable development environment, as the current
ArcView 3x-Avenue based application is no longer feasible to develop. The
replacement is presumed to be some type of web-based application based on
ArcIMS. ‘Replacement’ of MAGIC GIS functionality is generally a minimum
expectation. Web-based interactive mapping applications contain a substantial
amount of functionality and usually with a minor degree of enhancement they can
provide considerable improvement compared to the current environment.
Master Addressing Database/Geocoding Service
Addressing information is a fundamental part of GIS, as well as other business
systems within the City. The current addressing business process in GIS is time-
consuming to maintain, contains redundancies, is isolated from other business
data, and not suitable for integration. Similar to the replacement of MAGIC,
establishing a master address database and accompanying workflow redesign,
so that one database is maintained, is a minimum expectation, and is an
essential block in the enterprise GIS.
Public access to mapped based information
Accompanying the web-based mapping application will be the important
additional step of providing public access to the City’s GIS data. Some
departments all ready provide mapped information on the public web site;
however, there is potential to significantly improve this information. For example,
crime data is currently not available, yet there is a steady flow of request for this
information. From the Needs Assessment phase the high demand data will be
identified, which can then be bundled and delivered as appropriate for public
consumption. Most cities with mapped based information available to the public
develop a front-end design specifically for access GIS data.
Utility Systems, Conversion to GIS format
Public Works data is partially stored in CAD and partially paper based. To be
useful in terms of integrating the data with business systems, the data needs to
be converted to GIS format. The effort to bring water, sanitary, and storm data
into GIS will be considerable. Although the initial enterprise effort should focus
on establishing the city-wide system and infrastructure, data conversion usually
accounts for a fair amount of project resources. The utility systems of Public
Works are a large component and are anticipated to reap the largest efficiency
gains from the conversion to GIS. The Steering Committee will need to carefully
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evaluate prioritization of the utility systems relative with other data layers in order
to ensure maximum efficiency of limited project resources.
Project Organizational Structure
Implementation of the enterprise GIS will effect multiple departments across the
organization. In order to ensure the project receives city-wide representation, that policy
matters are appropriately reviewed, and that there is sufficient project management
authority, a well design project organizational structure must be in place. The following
diagram shows the proposed project organizational structure
IT Director
The Information Technology Director heads the Information Technology Division within
the Financial and Information Services Department. The GIS Coordinator position is
within the Information Technology Division and will report to the Information Technology
Director on the status of the GIS project. Policy matters related to this project will be
made by the Director of Financial and Information Services. The City Manager and
Executive Staff will be consulted and provide input as necessary to assure a smooth and
successful GIS deployment.
GIS Coordinator
This is a newly created position and is located in IT. The GIS Coordinator will be
responsible for overall project management and program development of the enterprise
GIS. The GIS Coordinator provides leadership, coordination, and monitoring of the day
to day activities of the enterprise GIS. The GIS Coordinator will be responsible for
ensuring communication and decision-making is made up and down through the
established project organizational chart.
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GIS Steering Committee
The GIS Steering Committee will be responsible for key project decision-making,
prioritization, and policy formulation during the enterprise GIS project. The GIS steering
committee will assist in the following areas:
Oversight during implementation of the GIS strategic plan. Review of major work
elements of the work plan;
Prioritization related to limited project resources;
Review of standards and procedures necessary to maintain an enterprise GIS;
Levels of accuracy needed to fulfill the purpose of the system;
How the information will be accessed within the organization, different user
groups and the public.
Technical Expertise
Given the technical complexity and diverse skill sets required for an enterprise GIS
implementation, professional GIS services from contracting are expected during certain
portions of the enterprise GIS development process. Specific project elements requiring
consulting services have yet to be determined, but will most likely occur during portions
of Phases 2 thru 4. The GIS Coordinator will be responsible for project scopes of work
involving consulting services and will be the main liaison with the consultant project
manager regarding contract execution.
GIS User Group
The GIS User Group will be composed of regular users of GIS within the organization,
primarily GIS Specialists/Analysts. This group will meet to share information,
troubleshoot software and data issues, and provide professional
suggestions/recommendations on GIS analysis projects of group members. This group
has not been officially formed, but is anticipated to be formed once there is a sufficient
critical mass of users.
Tech Team
The Tech Team will be responsible for much of the ‘behind the scenes’ assembly,
testing, and deployment of the hardware/software environment. The Tech Team will be
composed of primarily IT staff and may include occasional input from subject matter
experts in other departments.
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Sections covered in the Chapter:
Introduction
Tigard Enterprise GIS Vision
Components of Enterprise GIS
Enterprise GIS Goals and
Objectives
Measures of Success
GIS User Groups
Government Partnerships
Introduction
The City of Tigard recognizes the importance and utility of technology as a means for
improving its business processes, infrastructure, services, information and decision-
making. As the acquisition, management, and dissemination of information continue to
be increasingly valuable functions within local governments, so too has GIS proven to be
increasingly valuable. The City of Tigard is no exception to this observation, as it has
benefited from its initial investment in GIS. GIS and related output (e.g., maps and
analysis) has contributed to improve City business processes, information exchange,
and decision-making.
To that end, the City recognizes the value and importance of an enterprise GIS, and
thereby proposes to take the necessary action to ensure that its implementation is
efficient, effective, demonstrates value and is sustainable. Positive, yet reasonable,
vision, goals, and objectives will prove to be critical as the City proceeds with its
enterprise GIS implementation. The benefits of GIS, especially an optimal return on
investment and improved efficiency and effectiveness, can only be realized if GIS is
adopted and integrated on a city-wide basis.
Tigard Enterprise GIS Vision
The vision is a succinct messaging articulating the ultimate goal. In the case of the
vision for the City’s GIS, it describes the desired state of information use and will help
those involved envision the ideal end use, functionality, and end products.
The Geographic Advantage
“Provide a robust and high quality geographic information system that
empowers users to efficiently manage and maintain accurate, reliable,
and consistent geographic data, and to easily and quickly obtain
information in various formats on demand.”
Chapter 3 Vision Goals and Objectives
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Components of Enterprise GIS
The GIS vision for the City is to provide a high quality system to empower users to
manage and quickly obtain geographic data on demand. It is important to realize the
enterprise GIS project is not just a deployment of technology. It involves an
interdependent set of components that through careful orchestration will lead to a
successful enterprise system. These components include the following:
Modified graphic, credit to West Sacramento GIS Strategic Plan
Each of these components contains specific elements themselves and only through a
coordinated effort will the vision be achieved. These components include:
Coordination
1. Enterprise-wide GIS management
2. Leadership & management support
3. Identification, development, and maintenance of knowledge skills for spatial data
handling
4. Public service needs analysis and assessment
5. Strategic and tactical support for projects and programs
Data Standards/Procedures
1. Accurate, reliable, and consistent geospatial data standards
2. Implementation of enterprise-wide metadata standards, procedures, and
protocols
3. Documentation, archiving, and indexing of geospatial data
GIS Functionality
1. Effective use of GIS
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2. Defined tiers of GIS functionality
a. Tier 1 GIS Administration
b. Tier 2 GIS Analyst/Data maintenance
c. Tier 3 GIS Viewers, browsers
3. Inter-governmental access & Public access
Public Service and Customer Relations
1. Improve efficiency, productivity, and enhance public service related to
information containing geospatial data
2. Expand and improve public access to GIS
GIS Infrastructure
1. Technology: hardware/software/infrastructure
2. People: Skilled personnel, knowledge base
3. Data: geospatial information
Data Creation, Conversion, Maintenance
1. Geographic data handling procedures to acquire, process, store, and distribute
GIS data
2. Conversion, integration, and standardization of disparate data from multiple
sources and applications
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Enterprise GIS Goals & Objectives
The vision and statement provides the broad inspiring statement and initial direction for
Tigard’s enterprise GIS. To make the vision tangible, achievable, and enduring, there
needs to be concrete goals and objectives to guide short term decision-making and
actions. In addition, measures of success will let us know if we’ve met our goals. These
goals and objectives are intended to be achieved by the end of the GIS Strategic Plan
time line, or within three years. At this time a revaluation will occur to verify if the goals
and objectives have been met. The following goals, objectives, and measures of
success stem from the vision and will help guide the City towards a successful
development and deployment of the enterprise GIS.
Goal 1: GIS Quality
Accurate, consistent, and complete core geographic database
Objectives
1.1: Establish a centrally managed geographic database usable by multiple
departments.
1.2: Establish and implement a system design for enterprise GIS architecture.
1.3: Establish standards and procedures for the development and maintenance of
geospatial data.
1.4: Establish standardized methods and procedures for application development
related to integration with GIS (build it once, use it over and over again).
Measures of Success
1.1. GIS data can be accessed centrally by multiple departments with relative ease via
common point of entry.
1.2. System architecture as designed in place and operational.
1.3. Completed migration of enterprise GIS data from a file based data structure and file-
sharing environment to a spatially enabled, relational database management system.
1.4. Standards and procedures in place for on-going management of data, workflow,
methodologies, and resources.
1.5. Regularly scheduled and automated workflow, to the extent practical, of GIS data
updates for key base map layers from source system to the repository.
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Goal 2: Ease of Access
Easy and common access to geographic information
Objectives
2.1: Establish an efficient, reliable, and sustainable organization-wide access to
geospatial data.
2.2: Promote and guide the implementation of web based applications that facilitate
access to geographic information.
2.3: With GIS technology, improve public access to online city services.
Measures of Success
2.1. Improved performance and access to enterprise data for departments from previous
methods of access.
2.2. Initial enterprise deployment composed of web-based mapping solutions for GIS.
2.3. City GIS web-site updated with improved access to City services involving map-
based information.
Goal 3: Integrated GIS
Integration of GIS with other core business processes
Objectives
3.1: Promote the integration of GIS with other business systems and programs.
3.2: Use standardized technologies and techniques in order to ensure more
seamless technology integration.
Measures of Success
3.1. Successful integration of enterprise GIS with identified core business processes.
3.2. Standardized methodologies and techniques in place and in use during design and
development of integrating GIS with other business systems.
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Goal 4: GIS Training
GIS knowledge base improved within the organization
Objectives
4.1: Facilitate a GIS clearinghouse for sharing ideas, discussions, and information
about GIS related topics.
4.2: Improve GIS training opportunities to staff to empower them to fully utilize GIs
functionality.
4.3: Establish a GIS user group network within the organization to help facilitate and
grow the institutional knowledge base.
Measures of Success
4.1. In place technical support of enterprise GIS resources.
4.2. In place GIS training program.
4.3. GIS User Group established and functional.
4.4. GIS web site established as centralized “one-stop shopping” information center for
all GIS related resources (e.g., standards, procedures, data dictionary, and policies).
Goal 5: GIS Sustainability
Cost-effective and sustainable use of GIS technology throughout the organization.
Objectives
5.1: Establish centralized review and coordination of GIS resources, infrastructure
and initiatives.
5.2: Develop an on-going GIS program to ensure efficient use of enterprise GIS
resources.
Measures of Success
5.1. GIS Program established with program goals, objectives, and work plan.
5.2. GIS Program oversight established to ensure on-going system effectiveness.
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GIS User Groups
Enterprise GIS will be accessible to all City of Tigard employees
and eventually the public via the City’s website. Different users of the
enterprise GIS will have different requirements that can be
characterized in this pyramid model showing a set of tiers composed
of Viewers, Analysts and Administrator. The Viewers will by far
represent the largest user base of the enterprise GIS, consisting
of primarily web-based mapping use. The Analysts user
group represents the ‘power’ set of users that have more
advanced requirements for GIS and therefore need the
toolsets at their disposal. The Analysts will likely be the user
group equipped with desktop applications of GIS.
The Administrator user group is essentially the system
level management of enterprise GIS. This model is not meant to be a rigid concept, with
either or implications, but instead serves as general hierarchy for understanding how
users will interact with the system and what their relative needs will be. The chart below
identifies some of the specific user group activities.
GIS User Group Activities
Group Activity
Administrator System Administration
Data input/maintenance of the enterprise database
Data conversion
Spatial data management housekeeping
Technical support
Coordination of corporate GIS activities
Analysts Data Maintenance
Analytical functions/Geoprocessing
Complex queries
Modeling
Use of desktop extensions
High quality map production
Viewers
Browsing/Look-up
Standard reports
Simple query
Read-only access
Simple map production
Government Partnerships
Government partnerships are an important part of a municipalities’ GIS program. Data is
expensive to develop and maintain, and knowledge sharing is essential in providing
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efficient public services. Tigard is fortunate in that many Portland metro area
governments have invested significantly in GIS technology over the last two decades
and have created robust GIS databases and programs. Many of the data sets are
available through subscriptions and partnerships. Tigard currently subscribes to Metro’s
RLIS-Lite and is part of the regional orthophoto consortium. As well, Tigard participates
in data sharing with Washington County. As Tigard moves into an enterprise GIS
environment, its ability to share and received data can improve. With an established
GIS program, Tigard will also be able to coordinate more efficiently in data and
knowledge sharing with other established GIS programs in the region, including larger
programs such as the State’s evolving ‘GIS Utility’ program.
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Sections covered in this chapter:
Introduction
Organizational Structure
Enterprise GIS Staffing
Evaluation
GIS Positions/Roles –Described
GIS Groups -Described
Introduction
As emphasized throughout this plan, GIS is more than the technology. It is equally
about skilled and knowledgeable people developing, administering, and maintaining the
system. Of critical importance to the success of the City’s enterprise GIS will be how it is
structured within the organization and the proper allocation of staff resources. This
chapter discusses the organizational structure of GIS within the organization, meaning
its location within City’s department organizational structure, necessary staffing
requirements for a municipality the size of Tigard, including recommendations, and a
discussion of the various roles of support staff associated with maintaining the enterprise
GIS.
Organizational Structure
Essentially, organizational models for GIS fall into either centralized or decentralized, or
some hybrid of the two. The City’s current model is decentralized, with departments
assuming responsibility for management of their own GIS resources and data
management.
The general trend for organizations, especially governments, is to move towards the
centralized model of GIS management, with IT departments assuming responsibility for
program management. The fit is logical. Information systems, databases, and networks
are inherent to IT departments (ArcNews, 2004). Also, GIS has become complex in
recent years, especially at the enterprise level, and requires more technical expertise
related to system administration/planning, business analysis, coordination, application
development, and software applications. These are traditionally IT functions. In
addition, management lead from IT department is a logical migration because IT
departments are usually in a ‘corporate’ support role operating as a neutral department
in the implementation of corporate-wide activities.
The City will locate GIS administration within Information Technology Division of the
Financial and Information Services Department. This was decided early on in the
Chapter 4 Organizational Structure & Staffing
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planning stages of the City’s enterprise GIS and was made after consulting other local
jurisdictions within Washington County and researching trends in the industry. The
move is also consistent with the IT Division’s mission of providing cost-effective access
to data in a centralized computing environment.
The location of GIS within IT does not mean all GIS activities will occur within IT. There
is also a need for certain departments to use trained staff to provide in-depth GIS
analysis where there is a need. The City currently has several positions located within
specific departments (see matrix below) performing GIS specialist related activities.
These department GIS specialists provide a valuable support service to their
departments by being physically located within the department, employing their GIS
skills, and also having in-depth knowledge in the specific areas or disciplines, such as
planning or crime analysis.
While the location of department GIS specialist is good for the specific department, it can
mean problems for other departments in need of occasional GIS analysis. As will be
discussed below, some additional GIS expertise is needed at the enterprise level to
provide additional analysis and GIS services.
Enterprise GIS Staffing Evaluation
Having the “right” resources on-board is a critical factor in an enterprise GIS. Especially
important is having a core set of resources during the ramp-up or learning curve of
applying GIS technology to everyday activities. This section evaluates staffing
requirements and recommendations related to the enterprise GIS. These
recommendations focus specifically on the first three years of the start up period of the
GIS Program.
GIS Functional Areas and Staffing
A variety of positions interact in the administration of an enterprise GIS. Some are
devoted resources, such as the GIS Coordinator and others are ancillary or support
positions. Shown below is an enterprise GIS Resource Matrix to assist in identifying the
resources required for implementation and operation of the enterprise GIS, as well as to
making the business decisions of how to best provide the required support. The matrix
is based on a relatively small scale organization where an enterprise GIS is implemented
and coordinated centrally within an IT department.
In the first column are functional categories that are needed to minimally operate and
support an enterprise GIS. The position titles for each of the columns in the matrix are
typical titles for GIS support positions. This matrix shows how the functional categories
are typically distributed and/or shared, or possibly outsourced.
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GIS RESOURCE MATRIX
FUNCTIONAL
CATEGORY
GIS
COORD
GIS
ANALYST
DEPART
GIS
SPEC
DATABASE
ADMIN
WEB
ADMIN
HELP
DESK
Sys Admin (hw/sw)
Database Admin
Data Integration
Data Maintenance
Data Conversion
GIS Business Process
Evaluation
Routine App Dev
High End App Dev
GIS Analysis
Web enabled GIS
Routine Daily use
Answer Questions/front-
end troubleshoot
System Monitoring
GIS Project Management
Data Acquisition
Key
Grayed
Centralized in IT
Most likely outsourced
Decentralized in departments
Resource currently not available at City
Most of the functional areas are concentrated in the GIS Coordinator and GIS Analyst
positions. In the centralized GIS model, system administration, GIS project
management, application maintenance and development, and other associated functions
are performed by a few dedicated staff with specialized skill in order to support
widespread use by non-technical users. The functional areas identified in the matrix are
varied and typically require different positions. The GIS Coordinator focuses more on
system administration and program development whereas the GIS Analyst performs
application development and higher end GIS analysis. In a small organization, these
functions may be bundled into one position, but as a GIS evolves and grows within an
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organization, these functions are generally split into their respective job functions. This
allows the GIS Analyst to focus on providing GIS services directly to departments, in
particular those without GIS skills, and developing GIS tools and applications for a broad
base of users across a broad spectrum of business systems. Since use of the City’s
GIS is expected to grow once the initial implementation is complete, both of these
positions will be extremely important in providing the appropriate level of expertise and
support to City departments.
Current GIS Staffing
The matrix below shows the current distribution of GIS staff. There is currently one
position assigned full time to GIS support, the GIS Coordinator. The other positions fall
under different job categories and perform GIS duties as part of their job description.
Assigned GIS duties range from one quarter time (10 hours per week) to half time (20
hours per week). These duties involve data maintenance, GIS analysis, and map
production.
CURRENT DISTRIBUTION OF GIS RESOURCES
DEPARTMENT
PORTION OF POSITION ASSIGNED TO
GIS
MAINTENANCE/SUPPORT/ANALYSIS
Financial & Information Services Department
GIS Coordinator 100%
Community Development
Associate Planner 50%
Engineering
Engineering Tech 25%
Police
Crime Analyst 25%
Public Works
GIS Tech (1) 100%
(1) Position budgeted, but not filled
Recommendations
As shown between the two matrixes above, there is a gap in the current level of GIS
support and the desired level of support for an organization implementing an enterprise
GIS. The current environment has only one devoted GIS support position (GIS
Coordinator), with several other positions embedded within the departments performing
GIS duties to support department demand. Based on this evaluation, additional staffing
will be needed to provide adequate support for the enterprise GIS. A GIS Analyst
position located in the IT Division is recommended in order to provide enterprise GIS
support and fill in the identified functional areas as indicated above. Database
Administration, while identified as a needed functional role necessary to support GIS, will
need to be further evaluated from an overall city-wide information systems support
perspective. The table below shows the proposed distribution and addition of GIS staff
and related support. It is recommended that departments continue to monitor and gauge
the level of GIS work assigned to their GIS Specialist and coordinate significant changes
with the GIS Coordinator.
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PROPOSED DISTRIBUTION/ADDITION OF GIS RESOURCES AND RELATED
SUPPORT
DEPARTMENT
FY 06/07
FY 07/08
FY 08/09
FY 09/10
Financial & Information
Services Department
GIS Coordinator
Web Administration(1)
GIS Analyst
Database Administration
(1)
Engineering
Department GIS
Specialist (2)
Community Development
Department GIS
Specialist (2)
Police
Department GIS
Specialist (2)
Public Works
Department GIS
Technician (2)
Existing Position
Proposed Position
1) Contractual
2) Job title varies in each department. Level of GIS work subject to individual department
work programs.
GIS Positions/Roles -Described
GIS Coordinator
The GIS Coordinator is responsible for overall coordination of the City’s GIS Program.
Specific day to day responsibilities of this GIS Coordinator include: program
management, system administration, GIS database administration, back-up and
recovery, application maintenance, hardware/software upgrades, and oversight of help
desk activities (involving technical GIS issues). The GIS Coordinator is also responsible
for project management of GIS projects or is the primary contact on major projects
including a GIS component. Additionally, the GIS Coordinator is responsible for program
assurance. This includes:
Developing overall strategy
Quality management assurance
GIS budget and resources
GIS Program communication
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Developing the business case
GIS documentation
Consultation within the organization
GIS Analyst
The GIS Analyst acts as a major participant in the development and implementation of
GIS analysis projects and application development. GIS Analyst are usually skilled in
multiple statistical techniques, programming languages, relational databases and are
able to develop and interpret functional requirements in the development of GIS related
business process improvement and integration. GIS Analyst usually have received
some formal training and often have degrees or a high level of experience in GIS. There
are various professional levels of GIS Analyst (e.g., I thru IV).
The recommended GIS Analyst position would be located within the IT Division of the
Financial and Information Services Department and report to the GIS Coordinator. By
being located within IT, the Analyst position can remain ‘department neutral’ and take on
projects and duties with an enterprise service role serving a broad base of users. The
position would provide GIS Analysis services to all City departments as established
through the GIS work program and directed by the GIS Coordinator.
GIS Specialist –Department Specific
A GIS Specialist is involved with development and implementation of GIS analysis
projects. GIS Specialists are usually skilled in research techniques, multiple statistical
techniques, locational and spatial analysis techniques, and knowledgeable in different
types of GIS software. GIS Specialists are also involved with the development and
maintenance of geographic data sets. GIS Specialists often have an accompanying
specialty knowledge associated with their GIS skills (e.g., environmental, forestry,
transportation, planning, and crime).
As noted in the above matrix, some of the current GIS Specialist positions are not full
time. Additionally, some do not carry the title of GIS Specialist, but perform GIS duties as
part of their job description. While GIS Specialists perform work primarily for requests
within their department, they also, depending on workload, perform ad-hoc analysis and
GIS related functions for other departments. The level of time devoted to GIS is subject
to the discretion of each department’s need for GIS work.
GIS Data Custodians
The Data Custodian is not a position, but is a role assumed by specific staff members
related to establishing ownership, accountability, and maintenance of GIS data. In a
multi-participant GIS, it is important to institute formal responsibilities for the creation and
maintenance of GIS datasets that are part of the enterprise GIS. The Data Custodians
are essentially the data owners and are the responsible person(s) for establishing levels
of accuracy, currency, maintenance schedule, access limitations, and overall level of use
related data layers. GIS Data Custodians do not have to be the individual maintaining
the data, but can delegate that responsibility to another person. The GIS Data
Custodian is the primary contact in regards to major decisions related to the specific
dataset.
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GIS Groups -Described
This section describes committees and groups associated with and responsible for
elements of the GIS Program.
GIS Steering Committee
As mentioned earlier, the GIS Steering Committee is responsible for key project
decision-making, prioritization, and policy formulation during the enterprise GIS project.
Once the initial enterprise project is complete, a GIS Steering Committee will need to
continue to provide review and feedback of major GIS program changes, changes to
standards and procedures, and other GIS program initiatives potentially impacting
departments. Essentially, the GIS Steering Committee, or its replacement committee,
will change from a project implementation oversight mode to a program management
oversight mode. Once the GIS project is complete, the Steering Committee will need to
evaluate its role and develop a new charter and set of operating principles for its
continuance.
GIS User Group
The GIS User Group serves as an internal support group for staff actively involved in
GIS. The term “user” in this context refers to those involved with advanced GIS analysis
and mapping activities, using primarily desktop applications.
Generally GIS Users are involved with:
Ad hoc query, manipulation, analysis, and display of spatial data
Map production
Basic spatial queries using common GIS tools
Basic tabular queries of data
Editing of data
In addition to their analytical skills they provide, GIS Users help fulfill a valuable role in
their “front-line offense” of Tigard GIS. GIS Users are located in different departments
and thus have detailed knowledge of both the data they use and their business
processes. To help convey the knowledge and importance of enterprise GIS principles
with their specific departments, GIS Users are obligated to:
Be a steward of City GIS standards and procedures
Use GIS data in a professional and responsible manner
Be the department or area “go-to” person for general GIS questions
Attend and participate in the Tigard GIS User Group
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Section covered in the chapter:
Introduction
Overview GIS Cost & Benefits
Literature Review
GIS Benefits –Overview
Measuring Benefits
Quantitative Benefit –City of
Tigard
GIS Quantitative Benefit
Analysis
Efficiency Effectiveness
Evaluation
Introduction
Investments in GIS technology are often accompanied by questions about the benefits of
the investment. What are the benefits? Will the system pay for itself? Or can we afford
not to do this? One of the primary selling points of a GIS implementation are the
improvements in efficiency of existing operations, as well as improved efficiency at
performing new tasks; however capturing these in quantitative form and comparing them
to costs is not an easy task. Without a very thorough and in-depth analysis, it’s possible
to overestimate, or underestimate the true benefit the investment brings to the
organization. It is usually necessary to present a combination of qualitative measures
and narrative along with quantitative measurement to provide a complete picture of the
cost and benefits of a GIS implementation. This chapter provides an overview of the
cost-benefit analysis, a literature review of how cost-benefit analysis is being applied in
other organizations, a narrative of the ‘intangible’ benefits of GIS, and a benefit analysis
based on the anticipated efficiency and effectiveness potential for the organization.
Overview of GIS Cost-Benefit Analysis
Understanding the cost-benefit, or value, GIS brings to the organization is an important
part of the strategic planning process. A common analysis tool for assessing the costs
and benefits associated with an investment is a cost-benefit analysis. The cost-benefit
analysis is a systematic approach to account for all of the costs of an investment and
compare them to all of the benefits that can also be calculated. The result is usually a
benefit to cost ratio, meaning a fraction representing the return (benefit) on the
investment (cost). In short, a ratio showing if the investment will pay for itself. The
advantage of the cost-benefit analysis is that it helps take the opinions and emotions out
of the evaluation and attempts to account for, to the extent possible, the monetary costs
and benefits associated with the investment (Wilcox, 1990).
While it is relatively easy to explain and articulate the costs and benefits of GIS by
sourcing them by narrative, providing detailed measurement of all associated costs and
Chapter 5 Cost Benefit Analysis
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benefits of a GIS, especially an enterprise GIS is quite difficult and complex. For
example, benefits can be tangible (quantifiable), intangible (non-quantifiable), and also
contain external benefits (also non-quantifiable). It is also difficult to assign a value to a
benefit that will occur in the future that is currently not known, but will occur once the
technology is in place and its potential realized (latent benefits). In addition, the nature
and magnitude of benefits and costs vary from organization to organization.
Furthermore, it is often very time-consuming and expensive to develop a detailed GIS
cost-benefit analysis.
Literature Review –GIS Cost-Benefit Analysis
Fortunately, in the last 10-15 years, interest in documenting cost and benefit associated
with GIS has increased providing a surge in literature on the subject. Prior to that it was
difficult to obtain much information on GIS and cost benefit analysis. This section
includes a review of some of the recent literature related to GIS implementation and
justification.
One particularly noteworthy study on the subject of GIS cost-benefit analysis is the Joint
Nordic Project Report. The report presents information on costs, benefits, and
applications of 16 well established GIS projects in North America and two in Italy. The
study is considered to be one of the best single references for benefit-cost ratio data
(Korte 1996). The project findings are:
If a system is used for only computer-aided mapping and updating, it gives a full
return on investment (Benefit to Cost, or B/C of 1:1)
If the system is used for planning and engineering purposes, the investment will
be double (B/C 2:1). The ratio would rise to 4:1 where all commonly used data
sets have been automated.
Research reports published in Norway and Sweden show that the B/C ratio for
automating conventional maps is greater than 3:1.
If common system is created in which information can be shared among different
relevant organizations, the investment will come back four times (B/C 4:1)
For organizations with a poor system for manual map production, the automated
system has given B/C ratios up to 7:1 (Korte, 1996)
In A Pragmatic Approach to the Cost-Benefit Analysis of GIS, Wilcox (1990) points out
that over a six year planning horizon, there is common pattern of costs and benefits. “In
the first years costs are high, and benefits are low. In the latter years, benefits often
greatly surpass costs. Thus it is necessary to look at the cumulative effect of the costs
and benefits over time.” Wilcox also points out that “a well-planned, carefully
implemented GIS can achieve a long-term, fully discounted, cumulative return about
2.5:1 over the foreseeable planning horizon.” In other words, for every dollar invested in
software, hardware, system implementation and on-going operation, an organization can
expect to reap $2.50 in benefit. Wilcox further points out however, that this number can
vary from organization to organization and that recent cases return between 1:1 to 6.6:1.
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Gillespie (1994 and 1997) conducted case studies of 62 federal governmental GIS
installations and developed a regression model for estimating the benefits of GIS
implementation. Gillespie identifies two classes of GIS benefits: those associated with
efficiency increases and those involving increasing effectiveness. Efficiency benefits
arise when GIS is used to reduce costs of a task that, in the absence of GIS, would be
handled by some other method. Effectiveness benefits arise when GIS is used to
perform a task that could not or would not be done without GIS. Gillespie notes that
“Effectiveness benefits depend on the value of the unique GIS output” and as a result he
indicates that traditional benefit-cost analysis tends to underestimate the value of GIS.
The Gillespie model predicted benefit to cost ratios ranging between 1.2 and 6.5 for case
studies producing effectiveness benefits. Furthermore, Gillespie states there is a 75%
variable cost savings when using a GIS over manual methods.
Warrol (1994) identifies the ‘GIS paradox’: “while many perceive, financially, that they
cannot afford GIS, they realize that strategically and operationally they cannot afford to
not acquire GIS.” Such a finding leaves agencies in a quandary; the most important
benefits of GIS implementations are those most difficult to quantify, and the inability to
quantify such benefits may result in a reluctance to make the kinds of investments
needed to achieve the key benefits attributable to such investments allowing agencies to
become more effective.
As observed by Hardwick and Fox (1999) in their review of the Warrol ‘GIS paradox’
“one alternative for moving out of such a quandary, lies in a mixed analytical approach to
determining the benefits and costs of GIS implementation. Such an approach could
focus on providing a quantitative estimate of the more straightforward efficiency benefits
of GIS implementation, while providing a more qualitative estimate of the effective
benefits. Using such an approach would allow for the capture of the wide range of
benefits that GIS implementation can generate for an organization, while recognizing the
well-documented difficulties inherent in effectiveness benefit quantification. Realizing
the benefits of GIS implementation requires the successful implementation of GIS
technology.”
Summary
In summary, the following key points can be stated about the above literature review of
GIS cost-benefit analysis:
A comprehensive cost-benefit analysis is a difficult and complex endeavor
While in the short run, costs are high and benefits are low, in the long run
benefits often greatly surpass costs; therefore, it is necessary to look at the
cumulative effect of the costs and benefits over time.
A well-planned, carefully implemented GIS may achieve a cumulative return of
about 2.5:1 over a foreseeable planning horizon, although this number is highly
variable.
The greatest benefits of GIS technology appear to come from its ability to enable
agencies to provide services and do things they either could not or would not do
without GIS. These are benefits that are not easily captured in traditional cost-
benefit studies, which may tend to slow the adoption of GIS or lead to the
underinvestment in the technology due to a lack of demonstrating a rigid
quantitative return on investment.
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Evaluating the cost benefit of GIS should involve a mixed analytical approach,
i.e., an evaluation of the quantitative estimate of the straightforward efficiency
benefits and a qualitative estimate of the effective benefits.
GIS Benefits -Overview
The benefits of GIS have been extensively discussed in the literature, as well as extolled
in the business environment to promote its value to organizations. The list of benefits is
considerable. Most, however, can be isolated into some key basic categories. These
include:
Increased Efficiency/Productivity
Improvement in the delivery of a service or product
Eliminating or reducing redundant or outdated steps in an old process
Faster work, more units produced
New and innovative procedures
New or improved analytical capabilities
Decision support
Cost Avoidance
Lowering costs of a business process or operation (e.g., locating utilities)
Automating workflow (e.g., paper based to electronic)
Improving decision-making
Fewer mistakes
Improved Access to Information
Time-savings
Informed users
Increased communication
Measuring Benefits
The above section identified key categories of GIS benefits. When it comes to
measurement, benefits may be divided into two categories: Quantifiable and
Nonquantifable (or qualitative). Quantitative benefits are those that are measurable,
usually in terms of dollar value and/or time saved. Nonquantifiable benefits cannot be
directly measured but are best expressed by qualitative measures.
Nonquantifiable (Qualitative) Benefits
Not all benefits can be quantified in strict financial terms for return on investment. This is
true for qualitative benefits. These more-difficult-to-quantify benefits should, however,
not be discounted in terms of their contribution. Qualitative benefits can have a
significant positive impact on the success of an organization’s GIS investment. For
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example, in many instances, GIS creates an opportunity to improve access and reliability
of geographic information not possible without the GIS technology and, consequently,
not comparable with any of the organization’s pre-GIS operations. Generally, these new
capabilities are hard to express in financial terms and can be considered intangible
benefits. Interestingly, these new capabilities are frequently considered as the strongest
arguments for having a GIS (Stutheit, 1990). Some common examples of qualitative
benefits that can be expected from GIS include (Source: Silva 1998):
Improved services to customers
New analytical procedures
Enhanced visualization of graphical data
Improved data security
More consistent access to data
The ability to integrate data
The ability to generate new ‘understandings’, and easier access to data
More rigorous data management
Reducing the potential for maladministration and liability
Qualitative GIS Benefits -City of Tigard
So what are the qualitative benefits of a GIS for the City of Tigard? One technique to
assess qualitative benefits is the Value Measuring Methodology (VMM). The VMM is a
cost-benefit analysis tool designed to capture the dimensions that are hard to quantify in
traditional financial return-on-investment analysis. The Value Measure Methodology
was originally developed by Booz Allen Hamilton and academics affiliated with Harvard
University's Kennedy School of Government Security Administration and the General
Services Administration.
The Value Measuring Methodology used in this analysis is one that was created for the
State of Oregon’s GIS Utility business case. It has been tailored to fit with the City’s
particular business environment. The accompanying matrix (see below) categorizes
different intangible benefits for different City departments and provides a ranking method
to show relative importance.
The methodology involves assigning an ordinal measurement (a ranking of High,
Medium, and Low) to the various value categories. The value categories used here are
derived from the State GIS business case study. Not all the State’s categories from the
study have been applied as they were not all relevant for the City’s use. This ranking
was completed with input from the GIS Steering Committee. While the assessment is
subjective in nature, it nonetheless in sum provides a valuable picture of the various
intangible benefits for the organization.
Results
As shown in below, several of the categories of qualitative benefits routinely ranked as
high benefit. High benefit areas for all departments were data quality, accessibility,
timeliness, depth and breadth, and information integrity and security. Each of these are
intrinsically non-qualitative values, but nonetheless are extremely important for an
organization. For example, all departments rank accessibility as high. Accessibility to
GIS data, especially in an enterprise GIS is one of its top selling points. Routinely,
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departments want to be able to access data but are often confronted with not knowing
where to look for the data, or if it is available much work is necessary in order to make it
meaningful. It is interesting to note that the benefit categories ranked high by most
departments are ones that can be addressed most effectively by implementation of an
enterprise program with central coordination and oversight.
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Page 59 of 111
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Page 60 of 111
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Quantitative Benefits -City of Tigard
Implementation of an enterprise GIS will also result in quantitative or measurable
benefits for the City. As discussed above, these benefits usually result from improved
efficiency and effectiveness and equate to labor savings. For example, the enterprise
GIS will provide the opportunity to speed up data maintenance. Staff will also spend
less time obtaining information and performing certain tasks. In addition, in some
instances staff that normally had to ask someone else for information, can now access
that same information themselves.
The enterprise GIS implementation will also allow the opportunity to clean up current
redundant business process using GIS data, such as the maintenance of address
information for example. In this instance, a business process will result in a reduction in
staff maintenance time. The accumulation of these benefits eventually adds up and
provides a measurable return on investment. Typically, the benefits of a GIS
implementation start to outweigh the costs within a three to five year period
(Spotsylvania, 2006). The total benefits of a GIS are only fully realized over time. Over
a ten-year period the cost-benefit ratio is 1: 2.5. In other words, for every dollar spent on
implementation, the benefit to the organization over time is two and a half dollars
(Tomlinson, 2000). The cost and benefit relationship is depicted graphically in the chart
below.
GIS Quantitative Benefit Analysis
In order to make an assessment of the potential quantitative benefits and demonstrate a
return on investment of the enterprise GIS, the City conducted an Efficiency-
Effectiveness Evaluation. An Efficiency-Effectiveness Evaluation involves looking at the
current conditions of various business processes involving a geographic component and
attempts to determine the level of benefit that can be expected if GIS is implemented.
The following discusses the methodology and findings of this analysis.
Methodology
Identify Business Process Candidates
Each of the business processes involving a geographic component were inventoried and
assembled in a matrix. This is the same matrix listing business processes involved with
geographic information used earlier in Chapter 2. Business processes involving
geographic information are any business processes that deal with location-based
information. For example, the Community Development issues planning and building
permits. These permits have a location (such as an address). Likewise, the Public
Works Department’s facilities (e.g., water system) are location based, located through
the City of Tigard. As expected, a majority of the City’s business process can be tied to
some geographic component.
Evaluate Business Process Pre-Enterprise GIS Problem Areas
DRAFT
Page 62 of 111 City of Tigard GIS Strategic Plan
Each business process is evaluated for its pre-enterprise GIS problem areas. A list of
nine categories (see below) classifies different types of problem areas (such as
redundant data sets, or cannot find correct data when needed). Each business process
can include more than one of the nine categories if it applies.
1. Cannot find correct data when needed
2. Maps and data are out of date, incomplete, inaccurate, or nonexistent
3. Different data sets and maps have incompatible formats, definitions, and scale
4. Redundant data and maps maintained/produced.
5. Number of maps produced is limited by the person-time required
6. Number of alternatives evaluated during a study is limited due to the time and
cost required for materials and staff
7. Combining data and maps for a study is time-consuming and difficult
8. Dependent on personal knowledge and memory
9. Products are not standardized
Identify Potential Benefit Areas
Each business process is then evaluated for its potential benefits areas. These include:
a) Improved efficiency in business process/existing operations
b) Additional capabilities not available in a pre-enterprise-GIS environment
c) Improved response to unexpected, non-planned, or emergency situations
d) Revenues generated through sale of data and products
Similar to above, a business process can be associated to more than one benefit area.
Efficiency-Effectiveness Potential
With the GIS problem areas and benefit areas inventoried, the efficiency and
effectiveness potential are then ranked. Efficiency and effectiveness are evaluated
separately because they have different benefit implications. The following explains the
difference between the two:
Efficiency Benefits
Efficiency benefits arise when GIS is used to reduce the costs of a task that, in
absence of a GIS, would be handled by some other method. Example: Public
Works relies on paper-based drawings/maps for daily work involving the water
system. In the enterprise GIS effort, if the water system data is converted to GIS,
there will be an efficiency gain in daily work involving water system data.
Effectiveness Benefits
Effectiveness benefits arise when GIS is used to perform a task that could not or
would not be done without a GIS (Gillespie, 1994). Example: Police Department
(PD) staff is limited in being able to quickly access crime data run quick reports.
With an enterprise GIS, PD staff will have improved access to report information they
previously did not have.
The ranking is based on ordinal measurement values of High, Medium, and Low using
the following guidelines:
DRAFT
Page 63 of 111 City of Tigard GIS Strategic Plan
High = High potential return on investment to most all departments; Significant
potential streamlining of business process as a result of enterprise GIS; Improved
efficiency in response to, or business processes related to, emergency situations.
Medium = Moderate potential return on investment to more than one department;
Moderate potential to improve business process as a result of enterprise GIS;
Efficiency benefit potential to other agency.
Low = Return on investment potential limited to generally one department; Minor
potential to improve business process as a result of enterprise GIS.
Findings
Results of the Efficiency-Effectiveness Evaluation are shown below. Overall, the
majority (65%) of the business processes evaluated received a High efficiency benefit
ranking. The number of Medium ranking business processes was also considerable
(27%). Only 8% of the business processes evaluated had a Low potential for efficiency-
effectiveness benefit.
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Summary
The quantitative benefit analysis provides a systematic process for assessing return on
investment potential resulting from GIS enterprise implementation. The benefits
included in this analysis are associated with primarily labor savings. Based on this
evaluation and the identified efficiency gains, the enterprise GIS implementation has a
high potential to produce a return on investment. This is supported not only by findings
in this analysis, but by the literature review of other existing implementations.
Furthermore, as noted above, the evaluation of the quantitative side of the benefit
analysis is only part of the picture. Other more intangible benefits described earlier can
be realized and further help support the business case and demonstrate the value of
GIS for the City.
The next chapter provides cost estimate information and a financial strategy for
implementing enterprise GIS.
DRAFT
Page 69 of 111 City of Tigard GIS Strategic Plan
Sections covered in this chapter:
Introduction
GIS Cost Categories
GIS Cost Estimate & Financial
Strategy
Risks
Conclusion
Introduction
This chapter provides a financial analysis of costs associated with implementing an
enterprise GIS. As has been mentioned repeatedly in this plan, GIS is more than just
the technology; therefore this cost estimate looks at the total cost of GIS over a five year
forecast period, including the software/hardware, planning, design, development,
deployment, and maintenance and support of the system. This cost estimate is based
on the best available information and has been reviewed by a consulting firm for
verification and validation. Some costs, such as hardware and software are fairly
straightforward to estimate, and others such as data conversion are rough estimates.
This is because the GIS Needs Assessment phase, which will focus on data
requirements, is yet to be completed. Once the GIS Needs Assessment is completed, it
will be possible to assess the magnitude of the conversion effort and then adjust the cost
estimate accordingly, if necessary.
GIS Cost Categories
In the evaluation of the City of Tigard’s GIS, costs are divided into two types:
implementation and maintenance, or program costs. Implementation costs are those
costs associated with designing, developing, and deploying the initial enterprise GIS,
essentially costs during the first three years. Maintenance costs are those associated
with ongoing costs and maintenance of continuing enterprise GIS under a program. The
table below identifies the categories within the implementation and maintenance costs.
Note that some of the components are identified in each.
GIS Cost Categories
Implementation Costs
Computer hardware Application development
Computer software Database development
Needs Assessment/System Design Data Conversion
Chapter 6 GIS Cost Estimate & Finance Strategy
DRAFT
Page 70 of 111 City of Tigard GIS Strategic Plan
Maintenance (Program) Costs
Hardware software
maintenance/upgrades
Staffing
Data maintenance Supplies
Training/Education Technology investments
System support Application Development
GIS Costs Estimate and Financial Strategy
It is expected to take approximately two to three years to accomplish the objectives to
implement an enterprise GIS at the City of Tigard. The proposed strategy is to develop
the initial core enterprise GIS infrastructure within 24 months of approval of the GIS
Strategic Plan, followed by key application development and integration with core
business systems over the following 12 months. This will allow most all of the key
components of the enterprise GIS to be constructed and allow immediate city-wide use
as soon as possible. The three-year cost to establish the core infrastructure is estimated
at $759,250. The total 5 year lifecycle cost, factoring in the cost of the GIS program,
which includes staffing costs and ongoing maintenance costs, is estimated at
$1,631,115. Cost estimates are based on the best available information given what is
known about the current state of the City’s GIS, related business systems, and spatial
data. Costs estimates have been evaluated by a consulting firm for verification and
validation.
The schedule to implement the core GIS infrastructure is spread across three years.
Once the three year investment period is complete, the GIS program will incorporate
costs through normal budgeting within the IT Division. Certainty of funding is critical for
success of this project, especially during the implementation portion, since all of the
components are linked.
GIS COSTS FORECAST
Costs (1) FY06/07 FY07/08 FY08/09 FY09/10 FY10/11 Totals
Implementation
Phase 1 Strategy &
Planning
Phase 2 Analysis & Design
(Partial)
$125,900 $125,900
Phase 2 (Remaining)
Phase 3 Development
Phase 4 Deployment
$528,350 $528,350
Phase 5
Production/Operation $105,000 $105,000
Total Implementation
Costs $759,250
Maintenance (Program Costs)
GIS Program
$101,500
$122,790 $184,987
$215,536
$247,052 $871,865
Total Costs $227,400 $651,140 $289,987 $215,536 $247,052 $1,631,115
1. Costs do not include individual department business system enhancements with GIS.
2. Year to year costs adjusted for inflation (3%, based on Consumer Price Index)
3. Tigard staffing costs based on current City burden rates.
DRAFT
Page 71 of 111 City of Tigard GIS Strategic Plan
Risks
As with any major technology deployment there are risks associated with the
implementation of an enterprise GIS. Fortunately, the City’s delay in investing in
enterprise GIS technology has put it in the position where it will not be developing
‘bleeding-edge’. GIS technology is widely used and accepted, especially in the Portland
metropolitan area. In addition, the technology the City will purchase will be based on
standardized programming languages, open architecture, and will be primarily
Commercial-Off-The-Shelf (COTS) software not requiring significant customization.
Most of the risk the City will face will be internal during development and management of
the system. These include:
Data Conversion Costs
Data conversion is usually the most expensive component of a GIS
implementation. Estimates in this GIS Strategic Plan are based on limited review
of the current state of the City’s data, in particular Public Work’s utility data. The
GIS Needs Assessment will provide a more accurate picture of the magnitude of
the conversion effort. If it is found that the data conversion or data collection
effort will be more considerable, then the cost-estimates may have to be refined.
Department Conflicts/Scope Creep
In the enterprise GIS model, one comprehensive system will be designed to
serve all departments. In such a model, there will inevitably be varying opinions
and conflicts in how the system is designed. While this is typical in any multi-
department endeavor, during the enterprise GIS implementation it will be
particularly important to manage the scope of work closely and develop change
management procedures to ensure there are not excessive delays, excessive
costs, or incidences of scope creep broadening the project beyond is original
intent.
On-going Support/Coordination Requirement
An enterprise GIS will not persist, and subsequently not provide the intended
return on investment, if it does not receive on-going management, coordination,
and staffing as identified in this document. The technology is expensive and can
provide significant cost-savings; however, it takes special and devoted personnel
to ensure the savings are obtained.
Complex Technology
While the front end of many GIS are becoming more simplified and easy to use
for the casual user, it is important to realize the technology behind the GIS is
becoming increasingly complex. The City will need to acknowledge that certain
skill sets identified in this GIS Strategic Plan will be required to keep the system
at a certain level of operation. If these skill sets are not available, then the
benefits again are likely not to be obtained. The GIS Strategic Plan will become
an important component in establishing the required skill sets to sufficiently
maintain the enterprise GIS (See Chapter 4 GIS Organizational Structure and
Staffing).
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Page 72 of 111 City of Tigard GIS Strategic Plan
Conclusion
The City does not need to be sold on the value of GIS as a new technology, having used
it steadily for over 15 years. Despite the successes so far, however, the full utility for
what GIS can provide has not been fully demonstrated up to this point. Aging systems, a
lack of data access, incorrect address information, duplication of efforts, lack of strategic
planning, and shifting priorities all characterize challenges of the current GIS
environment. All of these issues speak to a larger need for a results-oriented, enterprise
GIS focus that can remain in place over a period of time to follow-through and deliver
results.
The enterprise GIS described in this plan will provide a focus and help the City to realize
value from GIS technology beyond what any one department or individual can achieve.
In truth, the City has already come to realize the value of this message by committing to
the GIS strategic planning process and the development of this plan, a logical first step.
Great efforts have been exerted to compile and develop a truly collaborative plan for GIS
that has the consensual support of the individuals across the city who will later
participate in the plan implementation.
The City has a unique opportunity before it to seize upon this momentum and develop
GIS infrastructure that can be part of a suite of mission critical decision support tools.
The impacts that would be felt to core business processes, internal efficiency and citizen
service are unquestionably important and will have positive impact on City governance.
With Council support and approval for the recommendations in this document, the City
will have taken the next step towards realizing the full potential for what GIS can provide
to government and the community it serves.
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Page 73 of 111 City of Tigard GIS Strategic Plan
The initial implementation of the City’s enterprise GIS is expected to take approximately
2-3 years. Work on the GIS Strategic Plan commenced in May of this year. The
targeted completion date is December of 2008. The schedule below shows the timeline
of the 5 phases of the project. The timeline assume adequate funding is in place to
begin the enterprise Needs Assessment in January 2007 and that appropriate budgeting
has been established for the upcoming fiscal years.
Chapter 7 Schedule
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Sections covered in this chapter:
Introduction
Phase 1 Strategy & Planning
Phase 2 Analysis & Design
Phase 3 Development
Phase 4 Deployment
Phase 5 Production & Operation
Introduction
This chapter contains the proposed work plan for the City of Tigard’s enterprise GIS
implementation. The work plan uses a five phase approach to design, development,
deployment, and implementation of the city-wide GIS. Upon successful completion of
this five phase process, the City of Tigard will have established core enterprise GIS
infrastructure capable of serving a much broader spectrum of users both internally and
within the community than previously available under the current GIS.
The five phases include:
The remaining part of this work plan is structured around the five phases and associated
work areas within each phase.
Chapter 8 GIS Work Plan Outline
DRAFT
Page 75 of 111 City of Tigard GIS Strategic Plan
Purpose
Phase 1 represents the strategic planning portion of the enterprise GIS implementation.
This phase establishes the overall direction for the enterprise GIS for the City of Tigard,
including a vision, goals and objectives, business case justification, financing plan, and a
pilot project. The first 5 activity areas shown below are complete and represent
Chapters 1 through 7 in this document.
Phase 1 Activity Areas
1.1 GIS Scoping/Preliminary Assessment
This first activity area involves a preliminary assessment of the current environment at
the City related to GIS.
Work Areas
1.1.1 Assess current environment (opportunities, constraints, challenges).
1.1.2 Research other similar agencies’ GIS in the Portland area.
1.1.3 Research evolving trends and business needs.
1.1.4 Evaluate architecture and application choices.
1.1.5 Preliminary evaluation GIS integration capability with key business
Phase 1 Strategy and Planning
DRAFT
Page 76 of 111 City of Tigard GIS Strategic Plan
processes.
1.1.6 Establish project organizational structure.
1.1.7 Identify and assemble ‘GIS Steering Committee’ members, establish roles
and responsibilities.
1.1.8 Identify deployment timeline.
1.2 Vision/Strategic Planning
Enterprise programs require more planning, testing, and change management than
desktop or workgroup solutions, and will have City-wide implications; therefore it is
recommended that an oversight committee be established to help with planning efforts.
With a ‘Steering’ committee on board, overall guiding goals and objectives can be
established and key issues can be resolved and/or prioritized. The steering committee
will also serve as representative or ‘project champions’ knowledge in many of the
important issues surrounding the implementation of the enterprise GIS. It is anticipated
that the committee will help serve as the main group of enterprise GIS promoters.
Activity in this section includes:
Work Areas
1.2.1 Development of enterprise GIS goals and objectives.
1.2.2 Identify key issues facing enterprise GIS implementation, identify
stakeholders responsible for decision-making these issues.
1.2.3 Identify high priorities for inclusion in enterprise GIS (e.g., mission critical
systems, high priority data).
1.2.4 Develop conceptual GIS enterprise architecture model, primarily for
communication purposes, demonstrate consistency with overall IT
architecture.
1.2.5 Identify user groups.
1.2.6 Identify preliminary staffing requirements.
1.2.7 Evaluate potential need for outside technical expertise (consulting services).
1.3 Business Case Development
This activity involves documenting the cost/benefits associated with an enterprise GIS.
While not every cost and benefit can be accounted for, specific examples of current
business process can be used as examples to show how the process could benefit
under an enterprise model.
Work Areas
1.3.1 Develop appropriate cost/benefit analysis.
1.3.2 Document other intangible benefits of enterprise GIS (e.g., improved
customer service.
1.4 Organizational Planning/Communication
A variety of organizational and resource related issues will need to be addressed to
ensure GIS implementation is congruent with the organizational structure, that GIS
functions are understood by stakeholders, and to ensure GIS is effectively maximized
within the agency. These include:
Work Areas
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Page 77 of 111 City of Tigard GIS Strategic Plan
1.4.1 Define organizational structure of GIS within the organization.
1.4.2 Create detailed staffing requirements/recommendations.
1.4.3 Establish roles & responsibilities of user groups.
1.4.4 Create Communication Strategy for informing/sharing stakeholders and
interested parties about status of Enterprise GIS.
1.5 Strategic Plan
This activity involves assembling the main planning document for enterprise GIS as well
as budget and timeline for deployment.
Work Areas
1.5.1 Develop Enterprise GIS Technology Strategy ‘Road Map’ (implementation
plan and timeline).
1.5.2 Develop enterprise GIS implementation budget, resource requirements.
1.5.3 Obtain approvals for plan and budget.
1.6 Pilot Project
A pilot project, or ‘early win’, will be an important milestone in the enterprise
implementation by allowing an opportunity to show decision-makers and potential users
where the project is heading with a real live tangible example and point out key benefits,
value, and functionality of GIS.
Work Areas
Phase 1 (Intranet)
Project Initiation
1.6.1 Identify initial pilot project parameters (i.e., goals/objectives).
1.6.2 Coordinate with steering committee to identify pilot project candidates.
Needs Assessment
1.6.3 Determine end user environment for pilot project, including public access
component.
1.6.4 Identify and document functional requirements of pilot project.
1.6.5 Identify and document technology needs with candidate project, including
procedures and requirements for deploying web-based mapping application
over Internet.
1.6.7 Research viable software applications to showcase pilot project.
1.6.8 Address Needs Assessment BP Mapping, database design.
1.6.9 Develop design document and refine cost estimates for GIS Pilot Project.
Development
1.6.10 Acquire software/hardware environment for pilot, including phase 2
environment.
1.6.11 Develop crime database access/download procedures, custom queries,
DRAFT
Page 78 of 111 City of Tigard GIS Strategic Plan
linkages.
1.6.12 Convert/develop and clean up address database.
1.6.13 Load crime data and test.
1.6.14 Acquire base map data, integrate into GIS.
1.6.15 Build and configure back-end environment.
1.6.16 Develop mapping environment.
t1.6.18 Develop standard report functionality.
1.6.19 Configure pilot.
1.6.20 Test pilot.
Deployment
1.6.21 Create demonstration format/strategy and present to interested/identified
parties, including a strategy of how the external website component will be
presented to the public.
1.6.22 Deploy pilot.
1.6.23 Conduct presentations/demonstrations internally.
1.6.24 Monitor usage/troubleshoot.
Phase 2 (External Website Deployment)
Development
1.6.25 Develop design of Internet front end/web page.
1.6.26 Develop and configure hardware environment.
1.6.27 Build back end environment.
1.6.28 Update as necessary mapping environment.
1.6.29 Configure external pilot.
1.6.30 Build front-end web page.
1.6.31 Test Pilot.
Deployment
1.6.32 Deploy Pilot.
1.6.33 Monitor web activity/problems/issues, adjust as necessary.
1.6.34 Report back to Steering Committee on success of deployment.
DRAFT
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Purpose
The Analysis and Design phase examines the business activities that can benefit from
the use of GIS by analyzing business processes and workflows within the organization
and document how geographic information is part of that workflow. From this
documentation, solutions are identified and overall system blueprint with an enterprise
focus is created. Additionally, rather than a department-centric focus, this method
breaks out of the department silos and looks at all elements and participants involved in
a particular business process.
Needs Assessment (Activity Areas 2.1 and 2.2)
The adoption of technological innovations such as GIS is not always a straightforward
process. GIS in particular can introduce fundamental principles of change to an
organization, especially in its thinking about geographic data.
In order to adequately grasp this fundamental principle of change and implement a
successful GIS, a Needs Assessment is necessary. A Needs Assessment is a
systematic look at how departments function and interact with geographic data in their
daily work. Conducting a GIS Needs Assessment fosters cooperation and enhanced
communication among departments by working together on a common technology and
new set of tools. In addition to the final Needs Assessment report that is generated,
Phase 2 Analysis and Design
DRAFT
Page 80 of 111 City of Tigard GIS Strategic Plan
intangible benefits can be realized by the organization. Finally, the Needs Assessment
activity itself serves as a learning tool where potential users in each participating
department learn about GIS.
Without a complete Needs Assessment within the organization, GIS technology could be
misapplied and fall short of achieving the benefits originally envisioned. If a coordinated
effort is not initiated, that technology could be haphazardly applied and not integrated
into daily workflow. Individuals and departments may adopt their own practices and
procedures in trying to force their way into the technology, most likely in an inefficient
manner.
At the conclusion of this Needs Assessment, the City will have all of the information
needed to plan and develop an enterprise GIS, which will then be provided in the
Implementation Plan document (see below) through work areas 2.3 thru 2.7. Information
that will be gathered during the Needs Assessment phase can be grouped into the
following categories:
Required GIS functionality
For a given department, certain GIS functions will be required, such as the
standard operations of map look up display and print, query and display,
standard reports with map, overlay analysis, buffering, other spatial analysis
functions, and possibly advanced analysis requiring special programming.
Required GIS data
Most departments use data that involves a spatial component. This data can be
paper based or tabular data sets that have a spatial identifier such as addresses
and zip codes or X-Y values. A Needs Assessment will identify how this
information can be used by GIS applications.
Special GIS Application Needs
In evaluating the responsibilities and workflow within an organization, certain
tasks will be identified that can be done more efficiently or effectively in a GIS.
These tasks will form the basis of GIS applications.
Procedures for maintaining GIS data
By looking at the workflow and processes within and between departments,
responsibility for data creation, updates and maintenance will become apparent.
Once all Needs Assessment information is collected and analyzed for each department
and published in a report, it will be used as the basis for the Implementation Plan or
blueprint for implementing the GIS.
Implementation Plan
Activity Areas 2.3 through 2.8 comprise the Implementation Plan portion of the Phase 2
Analysis and Design Phase. The Implementation Plan represents the blueprint for the
development of the GIS. This is where the individual needs and workflows are looked at
collectively and a solution is developed. Of particular importance in this phase will be
looking out how existing out-of-the-box software applications can best suit the GIS
requirements, workflow requirements, and data maintenance and where there are gaps,
as well as to what extent additional customization/integration is necessary. In addition
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the data conversion pilot project will provide the opportunity to evaluate the complexities
of converting the City’s utility base.
Phase 2 Activity Areas
The following section lists the activity areas of Phase 2.
2.1 Business Process & Workflow Analysis
Business process analysis and modeling is an effective tool for defining the business
activities associated with the use of GIS and when properly applied will greatly expand
the organizational benefit of the enterprise GIS. The business process and workflow
analysis outlined here will result in providing documentation of the existing business
process (“as-is”) and with the GIS technology (“to-be”).
Work Areas
2.1.1 Consultant review of existing documents, systems, resources, and activities
as they relate to GIS
2.1.2 Review and update business processes matrix.
2.1.3 Determine appropriate methodology/procedure/specific business process
candidates for modeling business processes.
2.1.4 Create Business Process & Workflow Analysis Worksheets.
2.1.5 Set up pre-business process analysis orientation meetings.
2.1.6 Conduct workshops/interviews.
2.1.7 Compile information.
2.1.8 Create draft report.
2.1.9 Conduct follow up interviews as necessary.
2.1.10 Review & refine final report.
2.2 User Requirements Analysis
Work Areas
2.2.1 Prepare Needs Assessment approach.
2.2.2 Conduct Initiate pre workshop/interviews.
2.2.3 Conduct interviews/workshops.
2.2.4 Compile information and create Requirements document.
2.3 Solution Definition
The Solution Definition step represents the compilation, review, and synthesis of Needs
Assessment and workflow analysis to arrive at an overall solution. This is an important
step as it represents the shift from the evaluation and analysis of user requirements to
resolve and the formulation of ideas, concepts, explanations that will reach the desired
solution.
Work Areas
2.3.1 Identify potential software suite solution
2.3.2 Conduct Gap Analysis, evaluate out of the box limitations
2.3.3 Determine additional application development needs
2.3.4 Determine overall application environment that will do the best job at
collectively addressing the identified application/workflow functions
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2.4 System Architecture Design
Via the Needs Assessment, the current system architecture will be known as well as
what is needed to adequately support a proposed enterprise system. System
Architecture Design will provide the foundation for building a productive operational
environment for enterprise GIS.
Work Areas
2.4.1 Review current system architecture
2.4.2 Develop overall System Architecture Design with upgrade
recommendations, application specifications
2.4.3 Develop conceptual interface design
2.4.4 Develop proposed hardware/software Procurement Plan
2.5 Data Assessment
This work area will involve taking inventory of the current inventory environment and
comparing it with the Needs Assessment findings to determine data gaps and issues.
This work area also involves evaluating the condition of existing data and determining
the appropriate steps to bring it into the planned GIS environment and also look at how
the data will be managed once it is within the enterprise GIS environment
Work Areas
2.5.1 Conduct data assessment of existing data sets and determine data gaps,
needs for additional data. Develop master Data Dictionary.
2.5.2 Develop overall map base model for classifying and grouping various data
layers.
2.5.3 Develop Data Conversion/Migration Plan and prioritization scheme based on
condition of data. Identify layers that are targeted for immediate upload into
GIS database.
2.5.4 Develop Data Management Plan to address updates, uploads, transfers,
replication, replenishment, backups, archiving, etc.
2.6 GIS Database Design –Conceptual/Logical Data Model
Conceptual/logical database design is the first step in database design where the
contents of the intended database are identified and described allowing for a
comprehensive mental framework and organized structure to be revealed. The
conceptual design captures the user’s view of the data and will allow the opportunity to
evaluate how all of the various aspects interact (relationships), while at the same time
providing the opportunity to identify major issues early on. This step uses information
developed during the Needs Assessment and typically places it a structured format in
the form of an Entity-Relationship Diagrams (ERD) or UML (Unified Modeling Language)
diagrams.
The ERD or UML diagrams show the relationships between database tables and identify
primary keys and important attributes. The purpose of the ERD or UML is to specify all
tables and relationships needed to support the GIS applications. The conceptual design
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process is iterative. It will identify items that are in existing databases that may need to
be geocoded and included in the enterprise system. New attributes or entities will be
discovered through interaction with staff and will require changes to the entities and their
relationships.
Given the various states of spatial data within the organization, information that is
currently maintained in GIS format or is maintained by other agencies, will not need to
go through database design, but can proceed toward being integrated into the GIS
database. Assuming the data meets the established standards (e.g., metadata
standards, currency requirements) and is fairly isolated from other data (e.g., zoning
layer, neighborhood boundaries), the data can be moved into the GIS database. Other
layers such as those associated with utilities will need to go through database design
stages.
Work Areas
2.6.1 Organize and prepare working groups/individuals for specific model(s).
2.6.2 Conduct meetings/interviews.
2.6.3 Develop logical data model(s).
2.6.4 Develop preliminary metadata requirements.
2.6.5 Review and validate w/ groups and update as necessary.
2.7 Application Design
Based on the Needs Assessment and Solution Definition, and in conjunction with the
goals/objectives and established topology of User Groups within the City, the application
environment can be identified. The GIS applications are those functions that GIS
software performs, whether ‘out-of the box’ or through customization, using
programming languages that will make the software useful to end-users. This activity
will result in conceptual descriptions of the software applications recommended for
development within Phase 3 Development.
This step should also include recommendations on priority application development
given that not all application development will be covered in the initial core
implementation.
Work Areas
2.7.1 Develop Application Design document with priority application development
recommendations.
2.7.2 Review and comment.
2.7.3 Prepare final document.
2.8 Data Conversion Pilot
Given the complexity of the utility systems within Public Works and the unfamiliarity of
the GIS data conversion process, a data conversion pilot project will be initiated. This
will allow all participants to work through the entire conversion process and evaluate
weakness/strengths/ and learn how to improve the remaining sets of utilities. The data
conversion pilot project will include one of the three utility systems: water, sanitary, or
sewer.
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Work Areas
2.8.1 Identify candidate utility
2.8.2 Develop scope of work
2.8.3 Implement scope of work
2.8.4 Review and refine process to improve further data conversion efforts.
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Database
Development
Data/Standards
Development
Applications
Development
Systems
Integration
Test Plan
System Testing
Phase 4
Deployment
Phase 3
Development
Phase 5
Production &
Operation
Training Plan
Phase 1
Strategy and
Planning
Phase 2
Analysis &
Design
Purpose
The Development phase is analogous to the construction phase of building a house.
Design documents, or ‘blueprints’, from Phase 2 are used to begin actual database
development, data conversion, and application development of the elements of the
enterprise GIS.
Phase 3 Activity Areas
3.1 GIS Database Development –Physical Data Model
The physical model is built from the conceptual/logical model and is the process of
implementing the data model schema within the geodatabase.
Work Areas
3.1.1 Develop physical database model(s).
3.1.2 Perform data conversion and migration based on Data Conversion/Migration
Plan.
3.1.3 Initiate database set-up and administration.
3.2 Data/Standards Development
Phase 3 Development
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A Geographic Information System is more than hardware, software, and data. It also
includes standards and procedures that enable the data and technology components of
the system to work together efficiently. The City will be using data and sharing data from
a variety of sources, both internal and external. This data may be stored in different
formats, have varying levels of accuracy, use different map symbols, be produced on
different schedules, be provided in different media, etc.. Although there are
technological ways to deal with some of these variables, standards and procedures are
necessary to ensure the City’s data investment is protected and continues into the
future. Standards and procedures serve as a corporate umbrella to promote data
integrity and consistency. One of the more important standards will be metadata for
individual data layers. These should be developed as the data layers are being created.
Work Areas
3.2.1 Create prioritized outline/list of standard and procedures to be developed.
3.2.2 Develop standards and procedures.
3.2.3 Review and test standards/procedures with stakeholders.
3.2.4 Develop single source location for easy access to standards and
procedures.
3.3 Priority Applications Development
The City’s enterprise GIS application development will be based on business
requirements. Under this approach, business functions and user needs identified
through the Needs Assessment drive the applications that are developed to support
these specific functions and users. This insures that the system developed will be useful
and will be used. Additionally, application development is the process by which the
functional requirements of specific users are translated into software tools that support
those functions. This requires that the functional requirements be transformed into
detailed design specifications for application programmers.
Work Areas
3.3.1 Develop detailed design specifications for priority applications as
recommended in the Application Design document. Specifications will
include, but not limited to:
Narrative description of what the application will do
What business function the application will support
A list of data inputs and outputs
A list of menus and tools with descriptions of associated functionality
Hardware and software requirements
Diagrams illustrating screen layouts and data models
Objective performance criteria that can be used to determine when
the application is “complete.”
3.3.2 Develop application prototype suitable for presenting, reviewing, test-run.
3.3.3 Verify alignment of applications with the functional requirements specified in
the Needs Assessment.
3.3.5 Conduct testing as per Testing Plan.
3.3.6 Incorporate additional modifications to application and refine accordingly.
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3.4 Training Plan
Training is considered a “critical success factor” in the implementation of enterprise GIS.
It is important to develop a strategy for developing a training environment within the
context of the existing structure, the topology of user groups, and tied to the goal of
establishing a sufficient knowledge base within the organization. The Training Plan
needs to encompass all personnel levels from within the organization from end users, to
help desk personnel, to system and database administrators, and representatives from
all levels of management, including decision-makers of GIS. The goal of this Training
Plan is establish a blueprint to develop a ‘critical mass’ of knowledge, awareness and
skills at the City so that the GIS program is successful.
Work Areas
3.4.1 Identify users that need to be trained
3.4.2 Identify the requirements that users will need to complete their work
3.4.3 Develop objectives and timelines for specific training phases
3.4.4 Evaluate relevant training options
3.4.5 Develop training program for each of the identified users
3.4.6 Develop single source location for easy access to training and knowledge
base information.
3.4.7 Implement training necessary to complete components of Testing Plan
3.5 Systems Integration
GIS systems integration includes the work necessary to integrate spatial and non-spatial
data from disparate technologies, applications, and business units for use in GIS. The
City’s GIS will be integrating with key business systems such as the public works asset
management system. This step involves determining the process of integration with
each of the different systems and will allow the ability to uncover potential integration
issues and resolve them prior to the Deployment Phase.
Work Areas
3.5.1 Develop systems integration document.
3.6 Testing
Adequate testing will ensure enterprise GIS is delivered with the correct functionality and
behavior as originally planned and designed.
Tasks
3.6.1 Develop approach, scope, procedures, and acceptance criteria in Test Plan.
3.6.2 Conduct testing.
3.6.3 Debrief on testing, recommended actions/changes.
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Purpose
Deployment represents the phase in which the enterprise GIS will be physically installed
and rolled out to the organization. Deployment will involve hardware, software
applications, web-based applications, databases, the network, and personnel, and
therefore needs to be closely coordinated to ensure an orderly deployment. To the
extent possible a phased deployment should be coordinated so as to not create a
situation of a ‘single switch’ event and run the risk of multiple problems emerging at
once.
Up to this point in the GIS development process, the GIS hardware and software will
have been acquired and data conversion completed (or a substantial portion has been
finished). Different components of the hardware and software will also have been
purchased. It is now necessary to put all the pieces together, test them to make sure
they work as expected, and to initiate all procedures necessary to use the GIS.
Phase 4 Activity Areas
4.1 Infrastructure Installation
Phase 4 Development
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Work Areas
4.1.1 Develop infrastructure Deployment Schedule, including communication plan
4.1.2 Initiate infrastructure deployment
4.2 Database Deployment
Work Areas
4.2.1 Develop Database Deployment Schedule
4.2.2 Initiate Database Deployment
4.3 Data Deployment
Work Areas
4.3.1 Develop Data Deployment Schedule
4.3.2 Initiate data deployment
4.4 Priority Application(s) Deployment
Work Areas
4.4.1 Develop Priority Application(s) Deployment Schedule
4.4.2 Initiate priority application deployment
4.5 Testing
Work Areas
4.5.1 Using Testing Plan developed in Phase 3, conduct testing as planned.
4.6 Training
Work Areas
4.6.1 Using Training Plan, conduct additional as planned. Note: training may
occur prior to specific deployments.
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Purpose
The Production and Operation phase will lead to a successful maintenance, monitoring,
support and service program for the enterprise GIS.
Phase 5 Activity Areas
5.1 Documentation Compilation
Work Areas
5.1.1 Assemble and inventory all identified required project documents
5.1.2 Complete remaining documentation.
5.1.3 Create single source resource location with easy access for relevant
documents.
5.2 Support Established
Work Areas
5.2.1 As identified in Training Plan, initiate GIS support program for identified user
groups.
Phase 5 Production and Operation
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5.3 Maintenance
Work Areas
5.3.1
Establish hardware/software maintenance program and lifecycle schedule.
5.4 Performance Monitoring
Once the system has been deployed, it will be important to determine what's working
right, what could work better, and what additional capability needs to be developed.
Work Areas
5.4.1 Conduct post-project assessment workshop with project participants
5.4.2 Review and compile report with recommendations
5.4.3 Develop plan for continue performance monitoring.
5.4.4 Determine measures for performance optimization.
5.5 GIS Program Development/Implementation
This document(s) will address establishing the overall program and associated work plan
for the City’s GIS Program implementation.
Work Areas
5.5.1 Separate document/task list(s) to be prepared.
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ArcNews Online. January, 2000. GIS Pioneers Discuss GIS in the Next Millennium.
Azteca Systems. April 2005. Cost Benefits of using a GIS-Centric Asset Maintenance
Management System. Azteca Systems, Inc.
Baltimore County, Office of Information Technology. November, 2001. Cost Benefit
Geographic Information Systems.
Batty, Peter. July, 2004. Future Trends & the Spatial Industry, Part 1. Geospatial
Solutions.
Beck, Preston. July 2004. Zero to Enterprise in 24 Months. ESRI 2002 World
Conference.
Booz, Allen, Hamilton. April 2003. Value Measure Methodology.
Brown County, South Dakota. August, 2005. Geographic Information Systems Needs
Assessment & Implementation Plan.
Calaveras County, CA. February, 2001. Countywide GIS Implementation Strategy.
Prepared by VESTRA Resources.
Chan, Tai On. Williamson, Ian P. July 1996. A holistic cost-benefit approach to
justifying organisation-wide GIS. University of Melbourne, Australia.
Dangermond, Jack. 2004. Serving our World with GIS. ArcNews.
Dangermond, Jack. February, 2000. GIS in the next Millennium. ArcNews.
Environmental Protection Agency. March, 2003. Guidance for Geospatial Data
Quality Assurance Plans. EPA QA/G-5G.
ESRI. August, 2004. Template for Creating a Project Vision Statement.
ESRI. August, 2004. GIS Organizational Structure and Staffing.
Folgert, J. 2006. GIS Needs Assessment.
Gillespie, Stephen R. 2000. Determining, Measuring, and Analyzing the Benefits of
GIS. URISA (Urban Regional Information System Association).
Gillespie, Stephen R. 1992. The Value of GIs to the Federal Government. GIS/LIS
1992 Conference Proceedings. Annual Conference and Exposition. San Jose CA.
American Congress on Surveying and Mapping, American Society for Photogrammetry
References
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and Remote Sensing, Association of American Geographers, Urban and Regional
Information Systems, and AM/FM International, November 1992
Gillespie, Stephen R. 1991. Measuring the Benefits of GIS Use. Technical Papers.
1991 ACS-ASPRS Fall Convention. Atlanta GA. American Congress on Surveying and
Mapping and American Society for Photogrammetry and Remote Sensing.
Hardwick, Paul, Fox, Bruce. February, 1999. Study of Potential Benefits of GIS for
Large Fire Incident Management. Prepared for USDA Forest Service Region 5, Fire &
Aviation Management.
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Johnson, Steven, Foley, Kevin. April 21, 2005. The Location Aware Enterprise:
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Attribute
1) A piece of information describing a map feature. The attributes of a ZIP Code, for
example, might include its area, population, and average per capita income.
2) A characteristic of a geographic feature described by numbers, characters, images, and
CAD drawings, typically stored in tabular format and linked to the feature by a user-
assigned identifier. For example, the attributes on a well might include depth and gallons
per minute.
3) A column in a database table. Attribute data is one of the two main types of data in a
GIS (the other being spatial data).
ArcIMS
An Internet Map Server software application for developing and publishing interactive maps
via the web (developed by ESRI).
ArcView
A desktop GIS application by ESRI.
Base map
A map depicting geographic features such as landforms, drainage, roads, landmarks, and
political boundaries, used for locational reference and often including a geodetic control
network as part of its structure. Examples include topographic and planimetric maps.
Desktop GIS
A geographic information system, such as ArcView GIS software, that runs on a personal
computer.
ESRI
Environmental Systems Research Institute. A GIS software company.
FGDC (Federal Geographic Data Committee)
A federal government group coordinating spatial data collection.
Geodatabase
An object-oriented geographic database that provides services for managing geographic
data. These services include validation rules, relationships, and topological associations.
A geodatabase contains feature datasets and is hosted inside of a relational database
management system.
GIS Geographic Information System
A Geographic Information System (GIS) is defined as an information system that is used to
input, store, retrieve, manipulate, analyze and output geographically referenced data
(location-based), in order to support decision making for planning and management of land
use, natural resources, environment, transportation, urban facilities, and other
administrative records.
Glossary
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GPS (Global Positioning System)
A system of twenty-four orbiting satellites used to determine location in three dimensions.
The Navstar constellation of satellites transmits radio signals identifying satellite locations,
which are used to determine a position on the Earth. Navstar is managed by the U.S.
Department of Defense and available for civilian use, albeit with a degraded signal. GPS is
used in navigation, mapping, surveying, and other applications where precise positioning is
necessary.
Layer
A set of related map features and attributes, stored as a unique file in a geographic
database. A GIS can display multiple layers (for instance, counties, roads, and hamburger
stands) at the same time.
MAGIC
(Metropolitan Area Geographic Information Consortium). The existing desktop application
used by the City of Tigard for generally look up and query of City geographic databases.
(MAGIC was designed by Metro and is used with ArcView 3x)
Metadata
1) Data about data. For GIS data, metadata usually means data that is designed to help a
prospective user find GIS data, determine whether is will serve a particular purpose, obtain
the data, and use it.
2) Metadata consists of properties and documentation. Properties are derived from the
data source, while documentation is entered by a person. By default, ArcCatalog
automatically creates and updates metadata, which is stored as well-formed XML data in a
file alongside the data or within a geodatabase. Metadata for a folder can also consist of a
well-formed HTML file describing its contents.
Orthophoto
An orthophoto or orthophotograph is an aerial photograph that has been geometrically
corrected ("orthorectified") such that the scale of the photograph is uniform, meaning that
the photo can be considered equivalent to a map. Unlike an aerial photograph, an
orthophotograph can be used to measure true distances, because it is an accurate
representation of the earth's surface, having been adjusted for topographic relief, lens
distortion, and camera tilt [source: Wikipedia].
Photogrammetry
Recording, measuring, and plotting electromagnetic radiation data from aerial photographs
and remote sensing systems against land features identified in ground control surveys,
generally in order to produce planimetric, topographic, and contour maps.
RLIS-Lite
Stands for Regional Land Information System. Metro’s quarterly subscription of regional
(Portland Metro area) geographic data layers.
Raster
Represents any data source that used the raster model to represent geographic
information.
Raster data
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One of three types of spatial data in a GIS (the others being image and vector data).
Raster data represents geographic space as a matrix of cells. Map features are defined by
numeric values assigned to the cells.
RDBMS (Relational Database Management System)
A database management system with the ability to access data organized in tabular files
that can be related to each other by a common field. An RDBMS has the capability to
recombine the data items from different files, providing powerful tools for data usage.
Shapefile
A shape file is the native ArcView spatial data format. In contrast to an ARC/INFO
coverage, a shape file is a simpler, non-topological format which offers the advantages of
faster display and the ability to be created or edited within ArcView. An ArcView shape file
also serves as an effective interchange format for moving data in and out of ARC/INFO or
other supporting software.
Spatial Data
Data that is represented in 2D or 3D images. Spatial data is information that describes the
distribution of things upon the surface of the earth. In effect any information concerning the
location, shape of, and relationships among, geographic features.
Topology
1) In geodatabases, relationships between connected features in a geometric network or
shared borders between features in a planar topology.
2) In coverages, the spatial relationships between connecting or adjacent features (for
example, arcs, nodes, polygons, and points). The topology of an arc includes its from- and
to-nodes and its left and right polygons. Topological relationships are built from simple
elements into complex elements: points (simplest elements), arcs (sets of connected
points), areas (sets of connected arcs), and routes (sets of sections, which are arcs or
portions of arcs). Redundant data (coordinates) is eliminated because an arc may
represent a linear feature, part of the boundary of an area feature, or both.
Vector Data
One of three types of spatial data in a GIS (the others being image and raster data).
Vector data represents geographic objects as points, lines, or polygons.
Sources:
Dictionary of GIS Terminology
Editing in ArcMap
GIS Data Conversion: Strategies, Techniques, and Management
INSIDE ArcView
Serving Maps on the Internet
Using ArcCatalog
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Sections covered in Appendix A:
Introduction
Communication Strategy and
Purpose
Success Factors
Communication Media
Content
Groups
Knowledge is Power
Introduction
Implementation of Tigard’s enterprise GIS (Geographical Information Systems) will occur
over the next 24 months. The project will have implications for most departments within
the City. In order to ensure City staff and stakeholders are kept informed of the project
and ensure a unified message is shared, a communication strategy is needed.
The communication strategy for the enterprise GIS project is designed to reach a
spectrum of audiences, both technically focused and non-technically focused –decision-
makers and non-decision-makers and ensure up-down, down-up and peer to peer
communication about the project. Information shared through the communication
strategy is primarily project information. Training of the actual software and or web-
based applications will occur separately, and will be part of a training plan document to
be produced later in the project.
Communication Strategy Purpose and Objectives
The following describes the purpose and objectives of the Communication Strategy:
Purpose
Align communication activities with GIS project objectives;
Ensure interested parties understand GIS project objectives;
Establish a process to keep impacted users and stakeholders informed in
a clear, accurate, and timely manner;
Centrally manage the generation, distribution, storage, retrieval, and
disposition of project information.
Objectives
Identify various groups to communicate the project to and tailor
information for these specific groups;
Appendix A Communication Strategy
DRAFT
Page 100 of 111 City of Tigard GIS Strategic Plan
Make information interesting and succinct. The project deals with
technical information that can be difficult to understand, especially in
regards to how end-users (clients) will be impacted. Understand the
audience and modify the information accordingly. Let people know how
they will benefit from GIS;
Keep information regular and current;
Ensure a primary contact person is established for managing project
communication (GIS Coordinator);
Be available to respond to questions and comments that will arise from
sharing GIS project information.
Success Factors
The following success factors will be used to evaluate if the Communication Strategy
achieves its objectives:
Awareness –Targeted groups feel they have received adequate project
updates
Timeliness – Targeted groups feel they have received project updates in
a timely manner
Content – Targeted groups feel the content of the information was
relevant to their specific group
Format – Targeted groups feel information was understandable and easy
to retrieve
Communication Media
Communication will take several forms. Depending on the type of group, the content of
the information, and the timeliness of the delivery, the appropriate media will be used.
These include:
E-mail Briefings
E-mail briefings will be short in nature, with links to other information or short
documents with succinct messages. Information is generally meant to inform
recipients of the project status or other pertinent information.
Paper Briefings
Paper briefings will be similar to above, but will be distributed in hard copy form.
This is meant primarily for Council members.
Working Meetings
Working meetings are primarily for addressing items within the Strategic Plan,
including specific tasks in the Work Plan.
DRAFT
Page 101 of 111 City of Tigard GIS Strategic Plan
Briefings in Person
Briefings in person include short updates on the status of the GIS project or other
active issues associated with the project. Briefings will be usually 15-30 minutes.
Presentations in Person
Presentations in person include longer presentations on the status of the GIS
project or may include informational topics, such as educating groups on GIS.
These presentations will be greater than 30 minutes. For example, a brown bag
presentation to City staff on GIS concepts is type of presentation in person.
Digital Project Notebook
The Digital Project Notebook will be a central repository of project related
documents. The idea is to promote a one-stop-shopping location for information,
a source where interested parties know where to go for the most up to date
project information. It is anticipated the location of the digital notebook will be
through TIG20 the City’s internal intranet. Information is not expected to be
private or confidential, but will be limited to City employees.
Internet
The City’s Internet will be used for posting of general project information, mostly
an overview and summary of the scope of the project. Some completed project
documents suitable for public consumption may be posted after they have been
completed. If the Pilot Project is made available to the public, it will be accessed
through the City’s Internet site as well.
Content
The following describes the type of content that will be produced during the course of the
GIS project implementation:
Information/Educational
Informational/educational content will be geared to inform and raise awareness
about the project or about GIS in general. This content will likely reach a broad
range of users and will need to take into account the laypersons perspective of
GIS.
Meeting Minutes
Meeting minutes will be created for meetings where key decisions are being
made, such as the GIS Steering Committee or meetings involving consultants.
The primary intent of meeting minutes is to briefly describe what was discussed
and itemize specific action items so there is documentation and clarity to those
involved.
Status Reports
Status reports will be brief memorandums detailing the status of the overall
project, reporting on outstanding issues, and reporting on project budget,
schedule etc.
DRAFT
Page 102 of 111 City of Tigard GIS Strategic Plan
Project Documents
Project documents are those documents which are identified as specific
deliverables in the Work Plan. For example, the Strategic Plan will be a project
document. Project documents will be usually issued as draft documents for
review and comment before becoming finalized.
Groups
The following identifies the various groups associated with the enterprise GIS project
and the types of communication that will be employed.
Group Primary Communication
Media
Frequency Responsible Party
Steering
Committee
Working Meetings
E-mail Briefings
Digital Project Notebook
Monthly GIS Coordinator
Executive
Staff
E-Mail Briefings
Briefings in Person
Presentations in Person
Bi-Monthly IT Director/GIS
Coordinator
Council Paper Briefings
Briefings in Person
At Executive
Staff’s direction
City Manager
City Staff E-mail Briefings
Presentations in Person
Digital Project Notebook
Bi-monthly GIS Coordinator
Public Internet Updated
monthly
GIS Coordinator
Departments Briefings in Person
Presentations in Person
Once or twice
during project
GIS Coordinator
Knowledge is Power
Finally, GIS in itself is very interesting. Most people are graphically oriented and are
drawn to maps which present information. It’s easy for people to say there are ready to
embrace GIS technology. However, accompanying GIS is a significant amount of
learning and understanding about how it works, and how it will function within the City.
GIS can bring with it a considerable amount of technical jargon. This communication
strategy will take this into account and adjust communications to the particular audience.
DRAFT
Page 103 of 111 City of Tigard GIS Strategic Plan
Likewise, these communications provide the opportunity to introduce the layperson to
basic GIS concepts and help build the collective knowledge base within the organization.
DRAFT
Page 104 of 111 City of Tigard GIS Strategic Plan
Sections covered in Appendix B:
Introduction
Minor and Major Changes
Introduction
The GIS Work Plan (Chapter 8) identified within the GIS Strategic Plan is a “living”
document. Changes to the work plan are inevitable so it is important to have a plan and
process in place to allow for continual adaptation and the ability to keep the project
moving forward without slipping or stalling. Change management plans are similar to a
“change order” or “contract amendment” and are generally limited to changes in scope,
cost, or schedule. The purpose of this change management plan is to define the
procedure and format that will be employed throughout the work plan implementation
and to ensure a communication protocol is established for stakeholders so they are
informed of changes.
Minor and Major Changes
The implementation of the work plan, schedule, and associated budget is a continual
series of course corrections, mostly minor, but occasionally major ones. In order to limit
overwhelming stakeholders with constant change notifications, only major changes will
be circulated for notification and the minor changes be managed in a Change Log
maintained by the project manager. The Change Log, stakeholders will be stored in a
location where stakeholders will have easy access to. In terms of distinguishing
between major and minor changes, major changes include:
Changes affecting budget by more than $10,000
Changes affecting schedule by more than 3 weeks
Changes that affect identified deliverables
Changes to approved consultant scopes of work
Appendix B Change Management Plan
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Boundaries
Annexation Approval Boundaries
City Limits
Waste Haulers
Police District Boundary
Police Grid Boundaries
Citizen Involvement Teams
School Districts
Water Districts
Tax Codes
Urban Growth Boundary (UGB)
Zip Code Boundaries
Urban Service Area
Neighborhood Boundaries
Neighborhood Watch Boundary
Tigard CBD
Census
1990 Census Tracts
1990 Census Block Groups
Total Households (1994)
Single Family Households (1994)
Multi-Family Households (1994)
Single Family/Multi Family Households (1994)
Household Forecasts (2015)
Employment Forecasts (2015)
Population (1994)
County Business
All Firms
Major Firms – 100 Plus Employees
Environmental
Contour Lines
Natural Areas
Soils
Familiar Places
All Development
Fire Stations
Schools
Appendix D Current City of Tigard Data Layers
DRAFT
Page 109 of 111 City of Tigard GIS Strategic Plan
Civic Building, School, and Park Locations
Apartment Complexes
Images & Photos
1994 Photos
1996 Photos
1999 Photos
2000 Photos
2001 Photos
2002 Photos
2003 Photos
2004 Photos
Feb 2005 Photos
July 2005 Photos
USGS 7.5 Minute Quads – 1984
Color Shaded Relief
Land Use, Tax Lots, and Permits
Site Address/Multi Addresses
Zoning
Comp Plan
Parking Zones (A/B)
Parks
Approved Subdivision & Minor Partition Locations
Greenways
City Owned Properties
Other Publicly Owned Property
Region 2040
Property Sales Information
Tax lots
Urban Reserves Study Areas
Vacant Land -1996
Vacant Land –1995
Planned Development Overlay
Buildable Lands Inventory
Street & Transportation
Accidents
Existing Streets
Addressed Streets/Street Centerline
Street Right-of-Way Names
Tigard Transportation Plan Designations
Roadway maintenance Jurisdictions
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Bike Routes
Trails
Bridges
Bus Lines
Bus Stops
County Functional Classification
Major Road
Sanding Priorities
Park & Rides
Railroads
On-Street Parking
Traffic Signals
Water & Wetlands
Metro Title 3 Hydrologic Features
Title 3 100 Yr Floodplain
Title 3 Wetlands
Title 3 Streams
Title 3 Stream Buffers
WACO 1974 Floodplain
1996 flood Inundation Line
FEMA Flood Plain
Rivers & Lakes
Streams
Watersheds
Wetlands
Riparian Setback Areas
USA (CWS) buffer
Zero Rise Flood Data
Safe Harbor Riparian Buffer
Other Themes
County Owner Properties
Election Results
Housing Authority Properties
Fire Hydrants
Residential Waste Franchises
Section Index Map
Quarter Sections
Annotation for GIS files
Building footprints
Overhead wires
Street lights
Water Meters
Water Quality Pond/Detention Pipes
Tree Inventory
Public Works Areas
Water Meter Reading Routes
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Site Development
WSRC Boundary
WSRC Redevelopment Opportunities
WSRC Bus Lines
WSRC Railway
WSRC Open Space
WSRC Wetlands Update
WSRC Vegetation Communities
City wide DEM
Other Data Sets
Metro RLIS Data