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Web-based GIS For Collaborative Planning And
Public Participation Toward Better Governance Through direct and easy access to the relevant information and learning about all aspects of a decision problem, the user should begin to modify existing ideas and generate new ones which can then be fed back into the system as and when appropriate. Meanwhile, through experimentation with choice alternatives, achievable solution alternatives can be identified and fed into the decision space, while unfeasible or conflict generating alternatives discarded. Formulation of decision choices should aim to maximise consensus and minimise conflict. On the other hand, feedback to users throughout the decision process is essential to inform how and why particular decision choice alternatives have been identified and also keeps clients aware of how they are formulating their decision choices while evaluation and feedback of the system by users is also essential to allow server administrators and designers to improve and clarify the systems (Kingston, 1998). GIS WEB APPLICATIONS IN PLANNING AND MONITORING OF URBAN DEVELOPMENT – SOME EXAMPLES In Malaysia, the growing interest of developing web base GIS in the government organisations as well as private sectors has been a positive sign in extending the use of GIS application to the public, apart from allowing for refer and acquiring of geographic information in digital form. The need to obtain views and feedbacks from the public is the main factor that motivates the development of web-based GIS pertaining to their relevant fields or activities. The examples being discussed are GIS web applications at three different planning and management levels that is the regional level, the state level and the local level. Discussion will reflect on the objectives of their development which are base on the organisational functions, targeted users, architecture in brief, and last but not least the functions provided to users. It has to be noted that all the projects discussed are still in the development phase and undergoing further enhancement in term of functions provided to user. Web-base GIS for Regional Monitoring: The Case of AGISwlk Application of GIS for Klang Valley Region (AGISwlk) was developed as a planning support system for decision makers in planning and monitoring of the Klang Valley region. The database for AGISwlk was designed and first developed to support eight application modules base on relevant sectors for development planning and monitoring of the region which are built up area, green and recreational area, traffic and transportation, squatter and low cost housing, environment, utilities and community services, industrial and commercial development as well as population and socio-economy. This required as many as ten elements of data including base maps, administrative boundary, physical characteristics, land development, population and socio-economy, environmental quality, traffic and urban transportation, green and recreational area, squatter and low cost housing, as well as public facilities and utilities (Yaakup et al., 1999). Subsequently, the application modules of AGISwlk were developed. Meanwhile, web-based GIS for Klang Valley or also known as AGISwlk Web was initiated as an extension to the prior developed database and application modules of AGISwlk. While AGISwlk was meant as a planning support system for decision makers in planning and monitoring of the region, the Web-Based GIS is more towards inviting public participation apart from providing information in the form of maps and data for public access, and paving the path for data sharing with agencies having the same interest. The Web-GIS applications developed for the case of Klang Valley adopted the three-tier client/server architecture comprising three main parts namely Clients, Middleware/Application Server and Data Storage (Yaakup et al., 2001). Two application modules were developed due to serve two different target groups base on the requirement and role of each one. The first module, which is the Public Interactive Maps Application aimed at providing information on Klang Valley apart from inviting public participation from the general public. Meanwhile, the second module also known as the Stakeholder Application was designed for the purpose of data sharing and collaborative planning between government agencies and planning authorities whereby the potential users are government officers. Figure 3 shows the interface for map display via the two applications.  Figure 3: Map display for the two different applications in AGISwlk Web Using Web-based GIS as a new tool for exchanging and gathering of information brings numerous benefits. It will be a simple way for the public or local governments to provide or exchange spatial information on the Net. The integration of data through distributed data access is expected to minimise data redundancy as well as time and cost of database development (Yaakup and Sulaiman, 2003). Interactive Maps for Public Access Through access to the interactive maps interface, users are allowed to retrieve information base on the eight application modules provided namely public facilities, industries and commerce, tourism, physical characteristics and built up areas, green and recreational areas, land use, housing as well as population and socio-economy. The map display and GIS operations provided such as Zoom In, Zoom Out, Pan, Hyper Link, Full Extension and Identify will enable users to access and retrieve the required information easily and interactively. Apart from that, several analyses results are also made accessible, for example, those associated with the Integrated Land Use Assessment (ILA) study to encourage users to participate in evaluating the model as well as final results for the purpose of improving the it. This is hoped to contribute to a better-informed society in a metropolitan region such as Klang Valley. The web page allows user to view and use the information displayed for further processing. The GIS web page was developed with the aim to facilitate users, especially BKWPPLK’s client to acquire information in digital form. Nevertheless, the web page acts as a source of reference in making decision and evaluation for planning and development purposes where Klang Valley is concerned. Data Sharing through the Stakeholder Application Module To coordinate development in Klang Valley, the use of GIS for planning and monitoring extends beyond the development of a comprehensive database. The AGISwlk data needs to be integrated with the local authorities as well as agencies directly involved in planning and monitoring of the region. A web-based GIS application for stakeholders was developed to integrate the data set and to encourage data sharing between various agencies involved in shaping the urban environment in Klang Valley region. As previously mentioned, the stakeholders application has the interest of promoting data sharing and collaborative planning between government agencies and planning authorities in Klang Valley through distributed data access. This application cater for two type of data to be shared, which are:
Meanwhile, the need for a two-way communication between AGISwlk and the stakeholders has led to the idea of distributed data access which not only support data exchange and sharing but also discussions, especially for the purpose of certain decision making. This method will enable stakeholders to complement each others need and hence ensure the validity and reliability of data. This will also encourage the implementation of various analyses using any kind of appropriate software as users are able to download each other’s data for the purpose. The results could then be made available on-line for discussion and feedbacks before the final decision is made. Apart from that, this application provides function such as Graphical buffer, mapnotes, Editnotes, save as project file and image capture to allow users to carry out analyses as well as share their views on-line by graphically adding to as well as editing or deleting of the displayed area being discussed. The approach applied is similar to that of hybrid model which combines the characteristics of the server- and client-centric models (Kingston, 1998) except that the complexities of translating requests and results are taken over by the ‘middleware’ layer through the adopted three-tier client/server architecture. Stakeholders will still perform their own task of capturing, storing and maintaining data relevant to their organisational operations. Meanwhile, AGISwlk’s web-based stakeholder application which act as the ‘hub homepage’ will provide access to aggregated subset of transactional data, present a visual user interface and allow for cross-disciplinary analysis. This is achieved through agreement with data providers.  Figure 4: Network configuration for distributed data access Basically, stakeholders need to have their own URL address to enable communication. Figure 4 shows the network configuration for distributed data access between stakeholders. Web Server A (AGISwlk) will provide the stakeholder application for user stakeholder access, in this case the Mineral and Geoscience Department (JMG) and City Hall of Kuala Lumpur (DBKL). Meanwhile, WebServer B and WebServer C which are the stakeholders’ servers will store their own data in the form of image or spatial data which are compiled in the form of AXL, mxd or JPG files. All the data to be shared will be kept in the map service generated in the web servers. Users will be allowed to access GIS data by choosing the map service provided by each map server. Username and password may be required for access of certain map service. Catalogue windows will be provided in the application to allow users to select the data to be retrieved. User stakeholders will be able to retrieve data and carry out analysis relevant to their decision-making requirement.. For example, JMG could access the AGISwlk Web Server that provides macro-level data or Web Server of DBKL (WebServer C) that provides micro-level data and display, retrieve or manipulate the data using the GIS functions provided through the stakeholder application on the AGISwlk WebServer such as overlay, buffer and so forth for decision-making purpose regarding issues concerning geohazard risk. At the moment, work is underway in establishing collaboration with all possible government stakeholders. GIS Web for Monitoring the Implementation of Development Plans: The case of Malacca Structure Plan At the state government level, the development plans are legal document that become the basis of development guidelines and control. Section III of the Town and Country Planning Act (Act 172) with reference to section 4, 5, and 6 stated the State Structure Plan (RSN) as a written statement emphasizing on the policies and general proposal of the State Authority regarding development and use of land for an area (JPBD, 2001). According to the RSN Manual, the preparation of RSN is crucial for the planning authority to initiate examination on the state development when required by the State Planning Committee or if changes in the sectoral policies occur, which will consequently affect the trend and pattern in the state development. In the case of Malacca, The state level GIS was developed to serve two main purposes. One is the planning purpose that includes the preparation of the key diagram for the State Structure Plan which involves a combination of analyses such as determination of area having potential for future development and area for conservation. The other is in monitoring the current development (Yaakup et al., 2003a). Subsequently, the GIS developed was further extended to the development of web-based GIS application for the State Structure Plan of Malacca which aimed at disseminating information in the forms of spatial and aspatial data especially regarding policies and guidelines involved in formulation of development programmes for the state. Initially, the adopted concept was more toward display of information in the form of image and maps and allowing for easy and interactive access to maps and relevant policies, especially for the clients of Department of Town and Country Planning. These are realised through development of user-friendly interface for map display apart from manipulation and simple query of data. Ideally, the web application should provide opportunities for users to refer to information relevant to the structure plan through the GIS functions provided so as able to contribute to the evaluation process of planning and decision-making concerning development of the state. The web was developed to include several modules that basically support the activities of structure plan formulation and review for the state, namely the main web page as well as module for sectoral selection, display of the general policies and display of the subject policies. The module for sectoral selection allows for users to choose from the five sectors provided including Physical, Sustainable, Social, Economic and Heritage. Each sector will be linked to the relevant policies as well as the stages of their formulation supported by relevant subject plans, diagrams and tables.  Rajah 3: Interface developed for monitoring the implementation of Malacca Structure Plan The web GIS developed is expected to improve public participation and collaboration in the decision making process through data sharing with government agencies, the private sectors as well as the general public. It allows for objections and proposals to be forwarded to the Department of Town and Country Planning through the feedback column provided and hence helps improve the quality of planning apart from providing transparency to the current planning process. GIS Web for Development and Building Control: The Case of City Hall of Kuala Lumpur The Interactive Maps Application for the Planning and Building Control Department (JPKB), City Hall of Kuala Lumpur (DBKL) was developed within a broader system package known as the Development Control System for City Hall of Kuala Lumpur (SKP). This first such support system for local authority in Malaysia which emphasizes on the planning and building control procedures and workflows, integrates as many as seven sub systems including the Planning Authorisation, Building Control, Enforcement, Geospatial and Planning Information, Information Kiosk, Document Processing and Meeting Presentation sub systems. The Interactive Maps Application is one of the modules developed under the Information Kiosk Sub System that serves to provide information regarding planning and development activities within DBKL’s planning zones. This sub system is built for internal users as well as the public to gather information through the Planning and Building Control Department’s web site. This kiosk provides detail information on Kuala Lumpur, the City Hall, the Planning and Building Control Department as well as development control and enforcement. The sub system also enables users to obtain various forms and support documents provided apart from allowing the City Hall to announce important issues and application results to the public as well as providing functions for access of spatial data through the internet (Yaakup et al., 2003b). The interactive maps application offers GIS functional tools and query forms for users to retrieve information through searching operation base on parcel number, street names, building type or area (Figure 4). Brief information such as the ‘search id’ will be displayed together with the selected location. Detailed information regarding a selected area or building can be obtained by executing the identify or select box functions.  Figure 4: Interface for Interactive Maps Application The interactive maps application allows users to refer and obtain spatial as well as aspatial information such as on land use and built up area, apart from tourist attractions and historical locations in Kuala Lumpur. The search operation which is developed using the ASP programming also aims at enabling the users, especially applicants to check their planning application status base on location/area and application file number. The feedback column provided in the kiosk will also allow users to forward their opinions or make correction wherever necessary. By keeping the public well informed of the development status in Kuala Lumpur and receiving feedbacks from users, the web base GIS developed is seen to support JPKB and DBKL in upgrading the quality of planning and development control in the jurisdiction of Kuala Lumpur. DISCUSSION Several issues arise and need to be tackled in the implementation of a web base GIS such as the case studies discussed. Among critical ones include dissimilarity in spatial reference and data format, security of data and capabilities of existing internet facilities. In establishing a platform for distributed data access for the purpose of collaborative planning, there is a need for a common framework for combining information from diverse stakeholders involved. The implementation of distributed data access would need for agreements to be made among stakeholders regarding the issues involved. Failure to address this problem will hinder the ability to perform the process of data overlay as well as use other GIS operations for the purpose of analyses. The traditional approach of conversion of one dataset to other’s model is still applicable but with several drawbacks such as loss of accuracy, precision or even meaning. Data allowed for access on-line is normally exposed to high risk. In the context of open system and use of data, emphasis has to be given to security measures to avoid system breakdown or interruption, damage or illegal access by unauthorised parties which would inevitably influence the users’ confidence in retrieving and using the data. Base on experience involving the case studies, three measures are identified to be effective to certain extent in protecting the data and system which are the use of user passwords, firewall and map service security which apparently complement one another. The use of login passwords would control access base on levels of users and affiliations. This is especially important in term of data maintenance and monitoring user activities regarding each of the data being access. Meanwhile, the firewall is used to control illegal access through the use of IP address and server port recognition. This will also help protect the data from damage or being modified without authorization. The use of map service security, on the other hand, emphasis on the use of the Arc IMS technology to limit user access to the MapService developed, through ‘Servlet Connector’ or ‘ActiveX Connector’. To access spatial data, user will need to provide the URL address, name of map service as well as user name and password. Only valid user will be allowed to choose the data layer required through the GIS web or GIS software. Speed of data transfer is another important factor to ensure the system can be effectively used. Delay in the operation of retrieving data tends to be bothersome to user. User will generally prefer systems that are user-friendly. Among the factors which contribute to the failure of public participation through web-based GIS in Malaysia is due to internet technology which still does not support effective data transfer. Public is thus discourage in using the system and eventually revert to the conventional approach. As for collaborative planning among stakeholders via the Net, the parties involved should consider the overall strategy especially in providing the infrastructure needed. In ensuring successful implementation of the application developed and it is fully utilised by all parties involved, the development should allow for transparency in concept and be able to generate cyber democracy between the entities involved through fulfilling their interest. The functions provided should be expanded to all possible effective communication environments such as forum, email or real-time communication (chat or message). Through these functions, the process of identifying and solving spatial problems or the task of identifying critical development elements can be carried out together. In fact, it assists the stakeholders in collecting useful information as well as measuring the exact requirement and importance of users. It is envisaged that through the development, application and evaluation of these three case studies of different spatial scales, the on-line GIS systems can be possibly applied to all planning authorities so as to move toward better governance. CONCLUDING REMARKS Internet base GIS is seen as a new approach that offers great opportunities for users to be involved in planning and project management in a more organised and efficient manner. The interfaces provided demonstrate the capacity to view, manipulate and distribute geographic data via WWW in an efficient, organised and user-friendly manner. Public can have access to these information and be more informed of the planning activities that are taking place while other agencies can assist in developing a better database which consequently enhance the decision making process. It is expected to revolutionise public participation and consensus building in planning by allowing anyone to access and use web GIS for capturing and manipulating spatial information with interactive sources and high customisation. Users can interact with GIS data and maps on the Web without having to own GIS software programs. It is also expected to provide interactive mapping and spatial analysis capabilities for enhancing public participation and collaboration in decision-making processes. References
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