ATLAS of INSPIRE implementation – an inventory of experiences, successes and headaches of European national mapping agencies

Walter T. de Vries1, Joep Crompvoets2, Jantien Stoter3, Ingrid vandenBerghe4

1Faculty Geo-information science and earth observation, University Twente, Enschede,Netherlands

2Public Management Institute, Katholieke Universiteit Leuven, Belgium

3Delft University of Technology , Delft, & Kadaster, Apeldoorn, Netherlands

4National Geographic Institute, Brussels, Belgium

The EU Directive 2007/2/EC to establish an Infrastructure for Spatial Information in the European Community (INSPIRE) applies in a uniform way to all member states of the European Community (European Parliament, 2007), but there is no uniform road to INSPIRE implementation. Instead, the ways that individual countries implement INSPIRE, and the ways that individual organizations perceive successes and bottlenecks in the implementation trajectory is different. Motivated by this observation, the aim of the EuroSDR (European Spatial Data Research) project ‘Atlas of INSIPRE implementation methods’ was to make an inventory of experiences when implementing INSPIRE. This inventory shows the variance and communalities regarding the implementation of INSPIRE by national mapping agencies and national INSPIRE contact points. This inventory formed the basis for the generation of the prototype Atlas for all national mapping agencies, policy makers and other stakeholders who have to implement INSPIRE.

The inventory started with a design of a conceptual framework of spatial data infrastructures development within the context of INSPIRE. This framework conceptualized such a development as the co-evolution of economic, legal, technological and organizational changes. The framework draws on organizational theory (Avgerou, 2000), and information sciences theory (Bowker, Baker, Millerand, & Ribes, 2007; Hanseth & Monteiro, 1998). From this framework it is possible to make a clear difference between cultivation approaches and institutionalization processes of information infrastructures on the one hand, and design approaches and coercive formalization processes on the other.

The data for the Atlas derived from a survey, conducted in two steps, and through 2 separate workshops (April 2009 and January 2010). Representatives from twelve European countries (Belgium, Bulgaria, Croatia, Cyprus, France, Germany, Netherlands, Poland Slovakia, Sweden, Switzerland, United Kingdom) completed the survey and participated in the workshops. The survey and workshop results and subsequent analysis formed the basis for building the prototype Atlas of INSPIRE Implementation methods.

The survey showed a clear difference in perceived implementation difficulties between older and newer member states in terms of transposition. Common problems on the other hand include the difficulties in promoting data sharing and interoperability, and difficulties in coordinating activities across different administrative levels and across themes. Very few respondents indicated having made large internal organizational changes or major changes in internal resource allocations. Still, INSPIRE has generated national discussions on data responsibilities, and on the need for intra-organizational attitude changes. In a few countries, organizations have started innovations in ways of working and associated management methods. In all countries, however, the implementation of INSPIRE is a continuous process of uncertainty re-generation; while one problem is solved, another one arises.

The two workshops revealed that the INSPIRE implementers do not perceive INSPIRE as an end goal (yet), but as a vehicle to promote public sector back office integration and cooperation. Furthermore, the effect of the formalizing processes through INSPIRE is that it has raised high awareness about spatial issues among many other public agencies, and that it is pushing innovation in older inert institutions.

The conclusion is therefore that a cultivation approach to implementation is more conducive than a blueprint design approach. Additionally, institutionalizing INSPIRE requires evident national leadership with clear objectives, mandate and frame. Yet, at the same time, it requires a gradual approach towards more flatter inter-organizational working relations, and a scaling up approach linking (supra)national implementation plans to local implementation plans.

References

Avgerou, C. 2000. IT and organizational change: an institutionalist perspective. Information technology & people, 13(4): 234-262.

Bowker, G. C., Baker, K., Millerand, F., & Ribes, D. 2007. Towards Information Infrastructure Studies: Ways of Knowing in a Networked Environment. In M. A. J.Hunsinger, L.Klasrup (Ed.), International Handbook of Internet Research.

European Parliament. 2007. Directive 2007/2/EC establishing an Infrastructure for Spatial Information in the European Community (INSPIRE).

Hanseth, O., & Monteiro, E. 1998. Understanding information infrastructure: 216.