Deutsche Gesellschaft Für Technische Zusammenarbeit GTZ Gerhard Bechtold

Jakarta, February 1997

Remarks on the study and the study author This GIS case study documentation has been compiled for the framework of the activities of GTZ's 'Working Group GIS'. The study is based on authentic data and actual implementation. The author of this case study has been directly involved in the establishment of the GIS described in this Paper. The project is carried out by GTZ since mid-1993. Contributions to the GIS of the project were given by all consultant team members and BPN staff, Indonesia. More details about the project can be found in Part 4 of this Paper. The author has been working for 15 years in land evaluation and set-up of national information systems. His contributions to the development of land evaluation at FAO have been applied in many countries. He is the founder of an on-line information system at ADAC (Germany) and the founder and developer of GILES (FAO) and JOSCIS (one of the largest one-concept soil databases in the world, SSLRC). Before Indonesia, he was on long-term assignments to Brazil, Ethiopia, Jordan. His educational background is geography, land evaluation, and computer sciences. The author welcomes any comments on this case study documentation. For comments or questions he can be contacted by: e-mail: phone mail@GerhardBechtold.com +49-(0)7621-9157276 Table of Contents PART I: BACKGROUND INFORMATION 1. Background and Objective of the Documentation 2. Project Objectives 3. Institutional Context of the GIS 4. Project Setup PART II: APPLICATION 5. Concept 6. Methodology and Techniques: Land Use Mapping 7. Methodology and Techniques: Spatial Land Use Management Plan (Land Allocations) 8. Further Institutional Aspects PART III: EVALUATION AND OUTLOOK 9. Concluding Evaluation and Outlook on Future Development APPENDICES App 1 Map Themes and Standard File Structure of Land Use Maps App 2 Sample Maps PART I: BACKGROUND INFORMATION 1. Background and Objective of the Documentation During the last few years Geographic Information Systems have more and more become common planning and management tools in technical co-operation projects. Also within the framework of GTZ-supported technical co-operation GIS is meanwhile being used by a large number of projects and for various different purposes. General recommendations for the introduction and operation of GIS in technical co-operation projects as well as brief descriptions of project-specific applications are documented in the GTZ-Guideline 'Geographic Information Systems - Application in Technical Co-operation Projects'. The German version of these guidelines was published in 1994, the English version in 1996. First training courses on the potential of GIS in general and the application of GIS-software were integrated into the training programme for GTZ staff. In October 1995, the GTZ working group 'GIS' reviewed the recent developments of GIS applications in GTZ supported projects and discussed further actions to be taken. During this discussion it turned out that there is a need for properly documented case studies of GIS establishments and GIS applications which already have taken place. Such documentation is are needed for two different reasons: First, there is an urgent need for practice-oriented training material for the steadily increasing number of GIS training courses which take place in the GTZ headquarters as well as on-site in various projects. Second, those projects which are just starting to introduce a GIS need concrete 'real world' examples of how this process has been planned and implemented in other cases. Thus, there are two main objectives of this documentation: First, it should serve as one component of a 'case documentation' of already existing GIS-activities in GTZ-supported technical cooperation projects. Several of such documentation will eventually render a valuable overview over different application objectives and implementation approaches. A potential new GIS-user can then select the case study which is most similar to his own application objectives as a starting base for the development of his own GIS-application and implementation concept. It should be noted, however, that the case studies are not supposed to serve as 'implementation blueprints', but rather as a first orientation and as a basis for initial discussions, which must precede the execution of the required project-specific GIS application concept ! Second, the case studies may also serve as training material for formal or informal training measures and as a source for autodidactic training. The described project ('LREPP-II/B') has the task of land use mapping for the implementation and control of land use planning at the 'National Land Agency' in Indonesia. The outline of this case study documentation basically follows the flow of achievements of a GIS project: It starts with the general expectations and task descriptions of the GIS in Indonesia and in the agency (Part 2 and 3), will then briefly explain the project setup (Part 4) and elaborate on conceptual (Part 5), methodological and technical (Part 6 and 7) and institutional (Part 8) achievements of the project. General problems and recommendations and an outlook to the future (IT in developing countries) will be discussed in Part 9. Sample maps and technical matters can be found in the Appendices and at the Internet at http://www.geocities.com/Tokyo/2439/. Details of technical projects and procedures have to be well documented. In the described project, some 40 technical manuals, step-by-step guides and papers have been printed and published. For the execution and familiarization of the databank activity, following manuals give further technical references and explanations: 'ILUD - DBMS', manual (January 1995, update April 1997) 'ILUD - GIS', manual (draft of July 1995, re-print May 1997) 'ILUD - GIS-Plot', manual (January 1996, update April 1997) 'ILUD - GIS-Monitoring', manual (April 1997) 'Manual for land use mapping based on aerial photo interpretation', manual (August 1994) 'Process automation of spatial land use planning and their cartographic presentation', paper (December 1996, only in Indonesian language) Technical specs for 'Process automation of spatial land use planning and their cartographic presentation' (February 1997) 'Manual for Quality Assessment' (February 1997) Beside the description of the project, this Paper will comment on project facts which are essential for the success of the setup and execution of GIS projects and applications in general, and to land use mapping and planning with GIS in particular: Any general GIS project experiences and conclusions are in red italic, with yellow background. GIS Project The main target reader of this Paper should have an understanding of GIS and digital terminology. Occasionally, it can not be avoided to discuss technical details: Detailed technical explanations (techniques and 'processes') are in smaller fonts, with gray background. Technical Details The project is a typical and representative example for the second phase of a GIS application in a Government institution. Most of the experiences gathered and documented here can be transferred to other similar projects and GIS implementations. 2. Project Objectives: Objectives, Justification and Integration of the GIS 2.1 Land Use Planning There is bound to be conflict over land use in many countries. Land resources are limited and finite. With high population numbers and/or high population increase in many Asian, African and Latin-American countries, there is a strong, urgent need to define land use plans to match the land resources with the land use in the best economical and sustainable way. In Indonesia, where this case study of GIS application has been originated, land use related problems are cited as one of the main problems of political and social consolidation. With the support of Geographical Information Systems, the decision making on land use planning as well as on implementation and monitoring can be executed faster and more reliably - 'better', as more data can be processed in a faster way, and 'transparent', as data are processed in a defined procedure. On any level of decision, executives need instant access to reliable spatial data. This includes information of the current land use, and land use as it can - or must - be changed.   For the setup of a GIS, it is important to have a clear goal with objectives already defined beforehand, rather than having the idea of setting up a database and to see later, what to do with it..... There must be a clear justification for a GIS ! At the initiation phase, this can not be defined, but the all over task has to be clear ! In the presented case, the aim was to support the Indonesian 'National Land Agency' with a fast, reliable and transparent system of data supply and interpretation for land allocation (concession, location permits), which are the local means for implementing and monitoring land use plans.  GIS Project Land use planning is the process to assess the potential of land and to define alternatives, in order to select and adopt the best land use options, and to implement and monitor these new land uses. In Indonesia, this is handled by various Government institutions on national, provincial, and district levels. Land use planning itself is not the subject of the GIS application described here. Other GIS activities and projects handle the definition of land use plans. The conceptual steps of improvements towards a land use system, where land is being used economically and sustainable are shown in Fig.1. The ToR of this GIS was specifically the assessment of land use, with the implementation and monitoring of land use and land use planning. Overambigous GIS approaches and objectives can easily fail - overloaded with tasks, they will never reach. GIS Project To control the land use plan implementation, a monitoring of three aspects has to be undertaken: In areas, where the land use plan foresees (recommends or allows) land use changes, to make use of the land in a more efficient and more sustainable way: These areas have to be monitored, to see if the recommended or allowed land use change was implemented according to the land use plan and in accordance with the permission for land titles. In areas, where the land use plan does not recommend nor allow any land use changes: It is important to monitor these areas on a regular basis to see that no illegal land use change takes place, i.e. without permission. In areas, where the land use plan enforces land use change, to keep the land sustainable, e.g. due to environmental impacts: These changes have to be monitored for their implementation. Modern planning methodologies require multi-sectoral analyses and these in turn require a broad and up-to-date database. 'Improving the quality of the information supplied to planners, policy and decision makers will improve the quality of planning and implementation of development oriented activities' (Ir. Soni Harsono, State Minister of Agrarian/BPN, 21/10/96). There are many advantages of digital inventory and interpretation of land use data for land use planning: The system is fast, easy to modify, capable of running different scenarios and models, can store large amounts of data, flexible for individual, specific requests and retrieval, can be accessed in many places simultaneously, can be updated with new data types and data sources within very short time, etc.   GIS and other information systems have substantial advantages over the traditional manual approach, such as transparency of decisions, homogenous approach, speed, 'responsive reaction to dynamic situations', ability to simulate scenarios, capacity to handle large amounts of data. GIS Project Potential disadvantages of a GIS-supported land use planning and monitoring tool are: Dependence on information technology (which itself is not a disadvantage, but it requires technology skill). Initially, requirement of training input, thus there can be a lack of trained manpower, and it needs a 'user-front-end of software': Therefore the system has to be set up in a user-friendly, easy-to-operate way. Data entry and accuracy of data: Process of data entry has to be done as easily and as efficiently and with as little error as possible. Costs of hardware and software required: Affordable systems and platforms have to be looked for, rather preferring PC than UNIX workstation, if possible. Establishment of new procedures and methodologies: An integrated system has to be developed and tested, staff to be trained. Conservative policies of some Government institutions: An 'educational' process is necessary, users have to be aware of the advantages, facilities and limitations. Problems of data in different formats agency specific and under the aspect of data sharing: One system, one structure, one standard to be agreed on, which is 'transparent' and compatible with other agencies' systems.   Like any other information system, GIS can have potential disadvantages. It is important to make users and clients aware of potential problems for two reasons: - Not to be too overoptimistic: 'The computer/the GIS/the system can do it/can do everything' - To be aware of the problems means to counteract in an early stage, and thus very often to solve it! GIS Project Fig.1: Concept of Land Use Planning and BPN's Role 3. Institutional Context of the GIS: The Role of the 'National Land Agency' in Indonesia As larger the country, as more important is the decentralization in sectoral aspects, as in Indonesia. Various Government bodies deal with the various specific tasks of land use planning. Coordination is extremely important between all concerned agencies, both in the field of delegating tasks and functions of land use planning as well as in the field of data exchange.   In technical terms, data have to be compatible and portable (between different platforms and software) on a defined quality level, and institutional exchange of data has to be established and made easy. Standards have to be agreed on and well documented! Only they will technically enable the exchange ! Intra-agency and inter-agency coordination is important in any GIS approach ! GIS Project The National Land Agency (BPN, with some 26,000 staff members) has an important strategic position in the mosaic of land use planning. BPN is the authoritative body responsible for the national land administration. BPN is responsible for the issue of location permits, which are based on the spatial plan for enterprises within the framework of capital investment and monitoring thereof. For the process of spatial planning, BPN contributes to the planning agencies with data on present land use and proposals of land allocation plans and legal aspects for land ownership, to avoid social problems due to misuse of land. The implementation of land use plans has to be stimulated and controlled with BPN's assistance and input, in particular in areas where ownership of land has a strong impact on the land use and its management ! Mechanisms and tools for the implementation of these components of the land use plan are the aforementioned mandates of BPN, such as land titles, land rights, land regulations, land use concessions, izin lokasi. It is not only the implementation in form of giving land use concessions to potential users, it is also the 'follow-up', i.e. the monitoring of giving these land use concessions and of the land use changes which can be observed and the control for their legacy. A legal and regular monitoring system ('land use change detection') is an integrated part of land use planning. Thus, with the wish to establish a satisfactory, peaceful, political and social environment, without invoking quarrels over land use conflicts, BPN has to carry out its mandate, based on a clear decision structure with reliable, transparent, up-to-date, spatial data ! Therefore, it was of utmost importance to strengthen BPN in the technical field, to have BPN capable and operational to assign land use and land use concessions in the framework of land use plans which have been agreed on, which are seen in a socially justified and rightful context, and which are fully based on correct and reliable data and procedures. The data being necessary for BPN to implement its important political and social function, are called 'spatial land use management plans': Maps ('spatial') which indicate the future situation ('plans') according to the policies given by the responsible planning institutions for land use and its management, including land owners ('management'). The starting point for this process is the inventory of the current land use, which is derived from detailed mapping of land use classes for macro-level land use assessment down to inventory of land parcels, ownership and land use concessions at the micro-level land use planning, where BPN is involved. In summary, the role of BPN to promote land use planning with the support of GIS and thus the task of the project is: to assess land use for definition of land use plans and land concessions, to monitor land use as a tool to control land use plans and land permits. Result of these efforts was the establishment of the 'Indonesian Land Use Databank' ILUD, which has been set up in the frame of LREPP-II. 4. Project Setup: LREPP A second phase of the 'Land Resource Evaluation and Planning Project (LREPP-II)' was set up and started mid-1993 and will terminate mid-1997. The project is split into four project components, one of these four components is explained in this Paper. This project component is executed by two international (GTZ and ITC) and two national consulting firms. Leading partner is GTZ, acting as a commercial consulting firm ('Drittgeschäft'). Funding agency of the loan funded project is ADB. The fundamental idea was to have a coordinated approach between four main agencies dealing with land use planning, to develop 'an overall national programme to strengthen the database, processes, institutions and skills for land resource evaluation and planning.' The involved Government agencies were: Bakosurtanal for base / topographic mapping, BPN for land use mapping, PUSLITTANAK for soil resource mapping, BANGDA for provincial planning (definition of land use plans). The main purpose of LREPP-II/B at BPN was the 'institutional strengthening, assisting BPN in the development of the capability to apply modern methodology and technology to land use mapping and monitoring, while producing the land use maps required for planning and monitoring in the priority areas'. The defined tasks are now completed: BPN has been strengthened as an institution applying new technologies, A databank system has been defined (ILUD) A methodology has been developed for land use mapping, land use allocations, and land use monitoring. It has been tested, implemented and taught The priority areas have been mapped with data sources of aerial photographs, field work and satellite images at the scale of 1:50,000 and 1:25,000, totaling up to 4 Mio. ha in 18 provinces of Indonesia Approx. 300 maps have been digitized and plotted, Staff in 18 provinces has been trained (some 500-700 staff members), Technical manuals for documentation and for training and for user's application have been written. For logistic reasons and for decentralization, the project has been split in five regions (see Map 1), with five regional centers in Jakarta, Samarinda, Denpasar, Ujungpandang and Manado. Map 1: Regional Setup of LREPP-II/B Some 450 personmonths consultancy services have been given at the end of the project. 11 experts (1 team leader, 1 information system specialist, 1 mapping specialist, 8 land use specialists) have been posted in 5 duty stations (headquarter and 5 regional centers). Some 74 PC and two workstations have been purchased and installed, with 20 A0 inkjet plotters, 19 A0 pen plotters, 22 color page printers, 38 digitizing tablets, 44 ArcInfo licenses, 29 Erdas licenses. (All figures are estimates, can be up to 15% higher).   Selection of software and platform (OS) is a crucial decision before the project execution. Criteria (in the following sequence) are: Compatibility of data (intra-agency and inter-agency coordination and data exchange) 2. Functionality, 'power' 3. Link/Interface to DBMS 4. User interface, 'ease of use' 5. Emphasis on GIS for mapping/survey/ cartography/simple analysis (vector GIS) or complex modeling (raster GIS) or image processing (RS) 6. 'State of the art' 7. Price 8. Reputation of software firm, local representation, software maintenance 9. Performance, speed 10. Hardware requirements Do not invest/believe in 'vapourware' (software vendors' promises and beta versions) ! Do not expect any GIS software without glitches and bugs ! A remark about 'integrated packages': While a few vendors offer an integration of raster and vector GIS, they are actually not. At the present, they are an overlay of raster and vector only. Let's way for a Talisman.... GIS Project   While ArcInfo is not considered as the most user-friendly and as the 'state of art', it is still the GIS market leader with its data format, its abundance of data and expertise worldwide, its strong ability to 'application development' with SML, CML, AML languages, and its full functionality. Therefore, it can still be recommended to large organizations for GIS implementations. Similarly, this is true for the DBMS, where dBase is not the 'state of art', but has as the first major RDBMS software set the international standards. xBase is still considered as the data format standard. For image processing, installed Erdas 7.5 is now out of the market. Erdas Imagine seems to keep the expectations for an approach as described here (it is presently being installed), as well does Ilwis. Technical Details The described project is a representative example of the second phase of the transfer of an institution to a GIS-operating institution, decentralized and on a relatively 'low-tech' level.   GIS implementations ('diffusions') have three phases: 1. Initiation phase, to introduce GIS and to build a GIS awareness 2. Implementation phase, to develop the GIS application and to test the system for the later production phase 3. Final institutionalization or production phase, to conduct GIS efforts on a large scale, production oriented, often profit oriented.   GIS Project The system as well as the institution is now ready for the third phase, the final 'institutionalization' or the 'production scheme' on a nationwide scheme to conduct digital land use mapping and implementation and monitoring of land use planning. The final target of BPN is the land use mapping, the issue of location permits based on GIS, the implementation and the control of land use planning and of the issue of location permits all over Indonesia (196 Mio. ha), to be executed at BPN headquarter, in 27 BPN provincial offices and in 394 BPN district offices (in total with some 1400 PC units). Map 2: Availability of LREPP-II Maps of Land Use (Sample of Jawa: Region 1, automatically generated as metadatabank) [See updated regional maps of Sumatera, Jawa, Bali + Nusa Tenggara, Kalimantan, Sulawesi, Maluku + Irian Jaya] PART II: APPLICATION 5. Concept: ILUD After clarification of the objectives of the GIS at the agency BPN, a concept was defined, based on three 'preconditions', four 'frame components' where the GIS core is integrated in, and the three execution levels.   Any GIS project has preconditions, frame components and execution levels ! They have to be defined during the first quarter of the project's life span. In most cases, they will be similar to the one described here. GIS Project The direct objective was to produce structured data in large quantities, which can be directly used for land use planning. 5.1 Preconditions Preconditions for the concept in the project were: User-friendliness: Except a very few permanent users of GIS, most of the users (technical staff to enter and compile data, or management to retrieve or query data) are not permanently working with GIS applications. Most users do not have previous GIS experience. Thus, processing steps and commands have to be easy, or even (as far as possible) automatically executed. Command line level was not acceptable. This was based on early experiences made in the project. The result of the human resource assessment was the recommendation for a user interface, which can be applied at all BPN offices (see also Part 8.2).   A human resource assessment (HRA) is one of the most important tasks before setting up, selecting or developing an information system. GIS Project Standardization: In all those many offices of BPN, it was not acceptable, that different codes, different technical approaches, different file names, different file structures etc. would be applied. In such a case, data can not be transferred from one province to another, not to headquarter, and not to other agencies. If data can not be used and can not be transferred to other users, they are considered as being useless. Performance: To fulfill the requests of fast, reliable, transparent data processing to satisfy and to support the decision makers in their difficult task of land use planning, it is obvious, that such a system has to run smoothly, can cope with large amount of data and that it can perform much faster and more accurate than the manual approach: 'We talk about hours rather than weeks' for the digital work ! Over a period of two years, with many discussions, workshops, meetings and feedback from provinces and regions, a system has been developed, which fulfills these preconditions, and which shows full viability. 5.2 'GIS Core' and 'Frame Components' This system ILUD ('Indonesian Land Use Databank') consists - in data and software terms - of three parts: GIS (with Arc/Info), DBMS (with dBase data files and Clipper5 exe files), and remote sensing (with Erdas). Beside these preconditions of the GIS concept (user friendliness, standardization, performance), following components are forming an institutionalized GIS application (Fig.2): Digital GIS core (see following Part 5.3) Objective orientation (as discussed in Part 2 and 3) Human resources assessment (as discussed earlier): In LREPP, it resulted in the development of the user interface 'ILUD'. Marketing and PR: Activities and data have to be made public, both within the agency and outside. New information technologies offer perfect tools. A distribution and sales policy is to be set up (see Part 8.4). Management: After GIS installation, this is the greatest challenge - and decisive factor for the GIS diffusion , 'above the technical level'. It has to be necessary, that some technical expertise can be 'carried forward to the upper management level' ! While the installation of a GIS at the technical level can take months up to a few years (3 years in the described case), the management adjustment and re-arrangement of an agency to digital data flow have to be often seen as a 'gradual process' and easily take years .... or decades ...   All these components shown in Fig.2 have to be considered in a GIS project ! GIS Project Fig.2: Components of the GIS (Core and Frame Components)   To perform all these requirements, it was preferred to introduce an acronym as a 'task name', where everybody can associate achievements and data with. In the project, it was the term 'ILUD', which stands for 'Indonesian Land Use Databank'. Obviously, in a second stage diffusion project (for implementation) particular emphasis has been given to the second and third item. 5.3 Execution Levels of 'GIS Core' In the actual GIS core, execution is done at three hierarchical levels. They are equally important, but work started from the top ! The levels are related and depend on each other !   Fig.3: Levels of Project Execution GIS Project Concept: Definition of the general steps how to achieve the goal of an agency (at second or third GIS diffusion stages) or of a project (first stage). It is expressed in rather general terms such as land evaluation, mapping, land use zoning, suitability assessment. Often, it can be found in 'ToR' or 'MoU'. In the presented project (see Fig.4), there have been two conceptional tasks: Land use mapping and spatial land use management planning. The former was defined in the ToR and in the 'Inception Report' (October 1994) of the project, while the latter was more complex and defined based on the requests of BPN officials, in a process of some 10-20 discussions sessions and meetings. Methodology: More detailed than the concept, the methodology describes the steps and models which are necessary to achieve the concept. Terms such as overlay, file names, standards, land characteristics, quality control etc. can be found. In the presented project (see Parts 6 and 7), various week-long workshops with 10 - 100 participants have been organized, to develop the methodology - and later to evaluate it, to receive feedback, and to correct it. Techniques (or 'processes'): At the technical level, a profound hardware and software knowledge has to exist to execute the tasks defined earlier. In general, it is easier to discuss the more general aspects and more difficult to find expertise to combine the technical aspects with the required task, i.e. to make the methodology 'feasible' and 'implementable'.   All levels have to be considered in a project setup and during project execution. Team members have to be aware and knowledgable. If not possible, tasks have to be assigned, staff and experience has to be recruited. GIS Project   As the project experienced, it might be possible, that limitations in the capacity of the staff or of the hardware / software can result in modifications or changes of the methodology or even of the concept: An aspect, which in many GIS projects is not considered ! GIS Project Fig.4: General Concept 6. Methodology and Techniques: Land Use Mapping: ILUD Software for Mapping The methodology to execute above mentioned concepts and to achieve the requested tasks can be split into two major parts: Methodology to conduct land use surveys digitally Methodology to interpret these land use maps and to come up with land allocation maps and monitoring maps 6.1 Methodology for land use mapping 6.1a Land use mapping from aerial photographs If aerial photos are the primary data source, aerial photo interpretation will be undertaken with delineation of 'API units' with stereoscopes. This is followed by field work, where for each defined mapping unit (not for each polygon) 1-10 samples are taken and their land use is described. Such a description both in terms of land use indicators (e.g., distance of houses, height of trees, etc. for the functionality: 'land use', not only 'land cover') as well as in terms of predefined land use classes is important because these data will be used for medium and large scale survey. Additionally, land use indicators (descriptions) can be used to check vs. the classification. The delineation of API will be digitized (using software module ILUDArc). Photo codes, which do not directly indicate the land use, are entered as polygon identifiers. This is called 'labeling' and is handled by module ILUDLab. Field data are entered in the DBMS with module ILUDEntr, processed with ILUDProc to assess the relationship between the photo interpretation codes and the actual land use (from the field descriptions). The result indicates, which land use class(es) occur(s) in each photo unit. This is then linked to the GIS data (with ILUDLab). The linked maps contain information about primary and secondary land use with their ratio, their numerical code, and their character code (abbreviation). It includes additional parameters such as the number of the province, the year of the survey, a quality control figure, and the software version (see Annex for a sample of the attribute data of the land use maps). All this information is automatically added during the linkage procedure with module ILUDLab. Topology is complete. Due to the size of Indonesia stretching over 9 UTM zones (90º - 144º E), and to keep all georeferences unique, data are always stored in geographical units (latitude/longitude). The map can then be plotted with module ILUDPlt, which includes a formal data integrity check (data completeness), for complete topology, for correct georeference etc. This is part of the quality assurance of the digital data. The plot can be done on a plotter or printer in any size. Alternatively, final maps can be transferred to other graphic formats (see also Part 8.2 and Annex). The plotted hardcopy maps follows a standard map layout based on the national grid system. Optionally, maps can be plotted based on administrative boundaries, e.g. for a District or a Subdistrict (with preparation through ILUDAdm, which 'clips' and aggregates map sheets). Care is taken for these cases if two substantially different land uses occur in one mapping unit, i.e. sparsely settled villages between fruit trees (in Indonesia called 'mixed gardens', or fish ponds in a mixed pattern with paddy rice fields). These cases can not be differentiated by photo interpretation, but they are often obvious in the field. These are 'complex units' and are identified both in the databank (with their ratio) and on plotted land use maps. Tab.1: ILUD Cycle for Land Use Mapping from Aerial Photographs   Step Process Com-ponent Module Result Time(1)  1 Aerial photo interpretation - (manually) Manuscript map ('API map') 1-4 days   2 Field work - (manually) Field data sheets 1-4 days (2) 3 Entry of field data DBMS ILUDEntr Data file with land use descriptions 1/2-2 days (2) 4 Processing of field data DBMS ILUDProc Data file with info about land use per interpretation code 10-30 min 5 Digitization of arcs GIS ILUDArc Raw digitized map ('Z coverage') 1-3 days 6 Labeling of polygons GIS ILUDLab Map coverage with labels and topology 1/2-1 day 7 Link DBMS - GIS GIS ILUDLab Digital land use map 5-20 min 8 Conversion to lat/long GIS ILUDCon -"- 3-5 min 9 Clipping GIS ILUDUtl -"- 10 min 10 Plotting GIS ILUDPlt Hardcopy map 20-40 min 11 Backup GIS ILUDUtl Backup copy 1-3 min (1) Per map sheet (2) Data collected/processed per 'study area', time given on pro-rata basis Various alternative approaches have been practiced and are installed in the system, such as digitization from aerial photographs, digitization of observation points from the tablet, transfer of observation points from DBMS to GIS and v.v., different generalization levels, selection between two land use classification systems, conversion from digitizer units to lat/long or UTM, manual editing of labels at map plot, etc. Fig.5: Land Use Mapping Methodology (ILUD Cycle) for Assessment of Current Land Use   Tab.2: Individual Processes of Land Use Mapping from Aerial Photographs Technical Details Step Process Processes Commands 1 API Delineation of homogenous units Assignment of 'API codes' (not land use classes) (Semi)controlled mosaic Transfer to base map -   2 Field work Field work design (stratified, random, clustered sampling method) Field descriptions Field correlation matrix - 3 Entry of field data Define dbf file (if new survey year) Add new record for each observ. site Enter data for each site (controlled, checked and coded) dB/Cl5: copy structure dB/Cl5: append blank dB/Cl5: replace 4 Processing of field data Searching for 'API codes' For each 'API code': Search for all observations with the 'API code' Assignment of dominant land use class(es) per 'API code' Transfer to 'polygon attribute' dbf file dB/Cl5: asort dB/Cl5: array calculations dB/Cl5: copy structure - append blank - replace 5 Digitization of arcs Create coverage Avoid double user ids Digitize arcs Delete/Split arcs Move nods Clean arcs ('overshoots') and Checks AI: create AI: calculat $id AE: ef arcs - add AE:ef arcs - delete - split AE: ef node -move clean 6 Labeling of polygons Build topology Create one label per polygon   Assign label AI: build AI: createla - calculat - idedit - build AE: ef labels - moveitem 7 Link DBMS - GIS Check/clean file structure Merging result from DBMS (PA dbf file) to coverage for extended attr.table AI: build - dropitem - tables.list AI: joinitem - additem 8 Conversion to lat/long Check for georeference (UTM or lat/long or dig. units) Option of direct or tic-based conversion Convert Re-build topology AI: tables.list   AI: project cover AI: build 9 Clipping Mathematical calculation of map frame acc. national grid Convert coverage+map frame to UTM Standardize fuzzy tolerance 1.clipping, 10% outside frame 2.clipping, precise Rebuilding topology AI: generate.lines   AI: project cover delete TOL. AI: clip AI: clip AI: build 10 Plotting Many checks for topology, labeling etc. Convert to UTM Creation of plot file with all features Plot AI: tables.list AI: project cover AP: displ 1039 hpgl2 - x.hp2 11 Backup Compress all GIS coverages and associated DBMS data per sheet pkzip (1) dB: dBase - Cl5: Clipper5 - AI: ArcInfo - AE: ArcEdit - AP: ArcPlot   Various quality control checks ('formal data integrity checks') are integrated in the software modules, such as: All of the land use descriptions (observed in the field) have an 'API code' (label from the photo interpretation) and a land use class , All map coverages have topology, All map coverages have label assignments ('API codes'), All map coverages are in geographical georeference, All DBMS and GIS data have a reference to the province and to the survey year, All map coverages can be automatically checked for 'overshoots', nodes, arcs not being polygon boundaries, Check for observation sites without land use classes, Check of coordinates of observation points: Digitized vs. field entry Technical Details     A number of utility sets are available, e.g. for: List observation sites (by codes, georeferences, land use etc.) Clip DBMS data (land use observation sites) according to a frame Calculate of map sheets according to the national frame Check integrity of data in DBMS and in GIS Transfer points from DBMS to GIS and v.v. Digitize points Inventory of existing maps (see Map 2) Update metadata Eliminate small units Check adjacent sheets Convert coordinates Calculate map sheet number form a given point Converting map coverages from other sources (with other coding systems) DOS commands: finding a coverage, 'cleaning' harddisk, copying Fixing data files etc.etc. Technical Details If the software modules are being applied, there is no concern for deviation from the standard and the application of the data dictionaries: Automatically, the programs (ILUD modules) apply the standard codes and the data become formally integer and clean. 6.1b Land use mapping from satellite images If satellite images are available, image processing of the scenes will be done in Erdas (7.5 or Imagine) with ILUDRs (not operational yet) and spectrally classified.   The image processing includes data import, enhancement, geometric correction, unsupervised classification with 27 classes, check of GIS file signature with image LAN file, optionally merging of signatures of obvious identical land use classes, assignment of new colors, and finally filtering of 3x3 for TM images. Technical Details The approach of an unsupervised classification was chosen because of the inexperience of the staff, the complex land use patterns, which can not be differentiated with spectral classification signatures, and the stress of large scale inventory and mapping for land use planning and land allocation permits. Collection of field data is not a major problem at the institution and results in more reliable data about land use definitions. After conversion to vector format in the GIS (with module ILUDR2v), this 'spectral classification map' is taken to the field and serves as a basis for the field data collection. Further processing is identical to above described procedure from the aerial photo interpretation, including the 'labeling' for land use classification, field work, and field data entry. Tab.3: ILUD Cycle for Land Use Mapping from Satellite Image   Step Task Com-ponent Module Result Time (1) 1 Image processing RS ILUDRs (3) Classified image file 1/2 - 2 days 2 Transfer to GIS (vector) GIS ILUDR2v Spectral classifi-cation coverage 1/2 - 4 hrs 3 Plotting of remote sensing result GIS ILUDPlt Hardcopy map of spectral image 20-40 min 4 Field work - (manually) Field data sheets 1-4 days (2) 5 Entry of field data DBMS ILUDEntr Data file with all land use descriptions 1/2-2 days (2) 6 Processing of field data DBMS ILUDProc Data file with info about inter- pretation codes 10-30 min 7 Labeling of polygons (per spectral class) GIS ILUDLab Map coverage with labels and topology 15 min 8 Link DBMS - GIS GIS ILUDLab Digital land use map 5-20 min 9 Plotting GIS ILUDPlt Hardcopy map 20-40 min 10 Backup GIS ILUDUtl Backup copy 1-3 min (1) Per map sheet (2) Data collected/processed per 'study area', time given on pro-rata basis (3) Not completed yet   Tab.4: Individual Processes of Land Use Mapping from Satellite Images Technical Details Step Process Processes Commands 1 Image processing Data input Enhancement Geometric correction Unsupervised classification Check of GIS file signature Filtering   E: bstat E: gcp - coordn - nrectify E: isodata E: colormod E: scan - majority filter 3x3 2 Transfer to GIS (vector) Convert to vector format Clip in two steps (+10%, precise) Standardize fuzzy tolerance Standardize file structure Read color assignments Eliminate small units Unique user ids   Merge lines Smoothen lines     Convert to lat/long AI: gridpoly AI: clip - build delete tol. AI: additem Pascal program AI: eliminat AI: tables.calculat - idedit - build AI: renode AE: unsplit AI: generaliz AE: grain (3 times) AI: project cover 3 Plotting of remote sensing result Convert to UTM Creation of plot file with all features Plot AI: project cover AP: displ 1039 hpgl2 - x.hp2 4 Field work (same as API)   5 Entry of field data (same as API)   6 Processing of field data (same as API)   7 Labeling of polygons (per spectral class) Build topology Assign labels   AI: build AE: ef lables - sel for ... - moveitem 8 Link DBMS - GIS (same as API)   9 Plotting (same as API)   10 Backup (same as API)   (1) dB: dBase - Cl5: Clipper5 - AI: ArcInfo - AE: ArcEdit - AP: ArcPlot - E:Erdas 7.5 7. Methodology and Techniques: Spatial Land Use Management Plan (Land Allocations): ILUD Software for Land Allocation BPN has the task to execute land use planning through the issue of location permits, including their control and monitoring. Particularly, the latter: control and monitoring of permits, was not handled efficiently and consistently in the past. The described GIS system ILUD includes these activities, to support BPN in its task. 7.1 Availability of Land under the Actual Land Use and Legislation Land can only be allocated to new land use pattern, if the actual land use under the land use legislation permits it. In Indonesia, land can not be allocated to new land uses, where steep slopes or shallow soils can not maintain a sustainable use, where land would be taken out of the main food production cycle (paddy rice land), along rivers in 50 m corridors, in already built-up areas, or in already assigned land. Most of these regulations are defined as presidential degrees. The processing (overlay of land use, slope, altitude, hydrology, already allocated land) is done with module ILUDSed. 7.2 Land Evaluation The physical land evaluation basically follows the concept of FAO's framework for land evaluation, with the definition of land utilization types, land characteristics, land qualities, suitability ratings of S1-N2. As data sources, resources maps with information about slope, altitude, drainage, erosion status, texture, drainage are linked and matched with the requirements of land use types (land utilization types, here called 'sectors'). At the present 20 of those types are defined with their requirements: Tab.5: Considered Land Utilization Types Permanent production forest Limited production forest Converted production forest Rice paddy Maize Peanut Soybean Banana Oil palm Rubber Cacao Coffee Tea Animal husbandry Fishery, aquaculture Urban settlement Rural settlement Industry Tourism Mining As soon as more data types become available and need arises for more detailed assessment, they will be incorporated. For user-friendly application, high performance and standardized output, a module to execute land evaluation, i.e. to assess the suitability in terms of suitable and unsuitable classes (S1, S2, S3, N1, N2) for specific land utilization types has been developed (module ILUDKes). It overlays slope, soils, and altitude maps, evaluates the suitability for the selected land use type for each land characteristic, and summarizes based on the limiting factor approach. 7.3 Government Policy for Development These maps are 'input maps' to the spatial land use management procedure. They have been defined by planning councils at various levels, not by BPN, partly based on the findings of the previously explained two maps (land availability map and land suitability maps). 7.4 Land Allocation ('Spatial Land Use Management Plan') With the two assessments of land availability and land suitability (see Part 7.1 and 7.2) and with the third input of Government policy, where land use should be developed according to the 5-year Development Plans of Indonesia (at national, provincial, or district level), land can be allocated. The execution of this double overlay is done with module ILUDUnt. Example: A housing complex can only be permitted, if the suitability is good (not steep slope), the availability is given (not replacing rice land), and where the development policy does not declare other priorities. 7.5 Monitoring of Land Use Changes and Location Permits Monitoring is understood at two stages: At the first step, it is the detection of land use changes, i.e. taking two land use maps of different years and compare them. (Overlay of two maps to define units which are not equal). At the next level - and more important in terms of land use control - is the integration of issued location permits to the land use change detection. There are following units resulting from such an overlay: Land use has changed, in accordance with the issued location permit. Land use has changed, without permission. Land use has not changed, but a location permit was issued. Land use has not changed, no location permit was issued. Tab.6: ILUD Cycle for Spatial Land Use Management Planning Step Task Com-ponent Module Result Time (1) 1 Assess current land use GIS described above Digital land use map (4-15 days)(2)  2 Check/Convert additional input maps GIS ILUDUtl Digital maps of: slope, hydrology, soils, altitude, Govt.policy 20 min - 2 days 3 Assess land availability GIS ILUDSed Land availability map 20-30 min 4 Assess land suitability GIS ILUDKes Land suitability maps (for particular land uses) 10-20 min 5 Assess land for allocation permits ('spatial land use management plan') GIS ILUDUnt Land allocation maps (for particular land uses) 10-20 min 6 Monitor changes GIS ILUDMon Monitoring map 10-20 min 7 Plot any of those maps GIS ILUDPlt Hardcopy map 20-40 min (1) Per map sheet (2) Data collected/processed per 'study area', time given on pro-rata basis     Tab.7: Individual Processes of Spatial Land Use Management Planning Technical Details   Step Process Processes Commands 1 Assess land use Described in Part 6   2 Check/Convert additional input maps Check manually Make user ids unique   Standardize file structure Convert with reference files ILUDUtl...dbf AI: tables.items AI: tables.calculat - idedit - build AI: additem - dropitem AI: joinitem 3 Assess land availability   Check all file structures Convert all to UTM Create buffers along rivers Overlay rivers with slope Overlay result with location permits Overlay result with land use Eliminate small units Adjust file structure Convert to lat/long Assignment of areas     AI: project cover AI: buffer AI: identity AI: identity AI: intersec AI: eliminat AI: additem - dropitem AI: project cover dB: replace ... for ... AI: dissolve   4 Assess land suitability   Selection of land use type Check all file structures Convert all to UTM Overlay soils with slope Overlay result with altitude Overlay result with land use Eliminate small units Read requirements of land use type Adjust file structure Convert to lat/long Assignment of areas       AI: project cover AI: intersec AI: intersec AI: intersec AI: eliminat AI: joinitem - modify AI: additem - dropitem AI: project cover dB: replace ... for ... AI: dissolve   5 Assess land for allocation permits   Selection of land use type Check all file structures Convert all to UTM Overlay suitability with availability Overlay result with Govt.policy Eliminate small units Adjust file structure Convert to lat/long Assignment of areas       AI: project cover AI: identity AI: identity AI: eliminat AI: additem - dropitem AI: project cover dB: replace ... for ... AI: dissolve 6 Monitor changes Check file structures Convert to UTM Overlay old with new land use map Convert to lat/long Adjust file structure Assignment of classes Eliminate small units   AI: project cover AI: intersec AI: project cover AI: dropitem dB: replace AI: eliminat 7 Plot of any of those maps     (see above) Monitor map with option to overlay 'Location permits' as shading   (1) dB: dBase - Cl5: Clipper5 - AI: ArcInfo - AE: ArcEdit - AP: ArcPlot - E:Erdas 7.5 Fig.7: 'Spatial Land Use Management' Methodology (ILUD Cycle) for Allocation of Location Permits and Its Monitoring 8. Further Institutional Aspects 8.1 Standardization: ILUD Standards If data are not standardized, uniquely structured and catalogued with their metadata, there will be the situation of 'having an ocean of data, but only drops of information'. It is important to guarantee that all GIS data are in a well structured, transparent system. A standardized information system was established nationwide. The main goal was to avoid that staff in the many offices of BPN (more than 400) would develop their own ideas up to that point that in every office different codes and different data 'systems' will be used. It even has happened that in the same office, from operator A to operator B, no exchange of data was possible ! This had to be prevented by any means !   Any information system has to define in an early stage, how the coding will be done. A data dictionary has to be defined and agreed on. Every staff member has to follow these rules: Either by order of the supervisors and of the senior management, and/or by software. GIS Project Therefore, a complete set of data standards ('Technical specs') with definitions on: Land Use Classification Data Dictionary File Names File Structures Directory Structure Grid Software Planning Procedure Hierarchy on Procedures and Data Map layout with colors Fuzzy Tolerance has been defined and used, and is presently expecting the clearance by the Minister. All data entry and processing operations follow the same procedures (i.e. the concept), have the same coding (e.g. land use classification codes, road classification codes etc.), follow the same file naming syntax, have the same file structure in each component, geographical references are unique, their map sheet numbering system is structured and geometric, etc. All this is 'transparent': Any data user and data owner of BPN / ILUD data can have a look at these standards and conventions. They are documented in software manuals, guidelines, training manuals, and are available electronically anytime by anybody at the Internet at address http://www.geocities.com/Tokyo/2439/ . The land use classification, as the core of the data dictionary, is a hierarchical, structural classification system, which can be extended for larger scales, i.e. at urban areas, and which has been defined to satisfy the requests of future users. It contains: 11 land use classes at the scale of 1:250,000 67 land use classes at the scale of 1:50,000 - 100,000 258 land use classes at the scale of 1:25,000 320 land use classes at larger scales (including urban mapping) At a first glance, this classification seems to be rather detailed. This is due to the scale (maximum mapping scale 1:25,000) and the purpose (the need !) to use these data for land use planning. One remark on the classification: While it is important to have a standard classification that users are familiar with and can work with, it does not mean that a GIS has to rely solely on those classes. In ILUD, there is an extended textual 'attribute' database (DBMS) behind the classification and behind the standard map display. This will become more important in future, when more specific requests will be made for specific land use mapping features, such as query requests for display or statistics for one specific land use type.   These 'attribute' data are stored in dBase dbf files, and are processed by Clipper exe routines. Technical Details 8.2 Software for user interface Many GIS software packages are overloaded with functions, which makes them powerful at one side, but dangerous on the other side for the institutionalization by an agency. Staff will be inclined to 'play around' with too many functions, and loose the view on their task ! It can easily happen, that people are 'dragged away' by all the nice, but rather useless pictures on-screen in true colors and with high resolution, at the 'state of art'. The above mentioned concept and standards can only be guaranteed by introduction of a user interface. All operators follow a well established sequence in their tasks of data entry, processing and retrieval. The rather complex chart of the concept comes down to an easy-to-follow, step-by-step routine (see Tab.1,3,5). A stream-lining of the procedures is necessary in an implementation and production scheme. GIS Project Introduction of an easy, user-friendly interface was a 'must' to establish a GIS in a huge organization with decentralized structure, but request for a nationwide unique technical approach. In the described project, there was no alternative to the full software ('user interface') environment, often described as 'application development'. A software interface was developed, with restrictions to the necessary, essential functions, to guide object-oriented through the process - and the various software. Beside the 'stream-lining' effect, the user interface had to be most user-friendly. As assessed earlier as a precondition of the project (Part 5), the system has to be applicable 'on ease' by the staff. The only menu options to be answered are of general nature, which can be understood by the staff easily after a short introduction to the system - questions such as which year, which province, which printer, with or without annotations on the plotted map, which generalization level etc. (see following Figs. 8-10). One advantage of such a system is the low training requirement of staff. Training had to be given to: Large number of GIS users (operators) to perform the task of the agency. (At the present, some 600-800 staff members are trained in the ILUD application. At the future production scheme, there might be some 2000-3000). Small number of 'application developers' at headquarter (core programmers, which design the interface and develop the standards)    An early 'human resource assessment' is essential in every project to define the level of process execution. The most important aspects at the HRA are: What is the present and the potential knowledge of the staff (technical staff/management) ? What is the general level of education of the staff ? What is the logical ability of the staff ? How many staff members shall be acquainted with/execute the GIS? In how many places/offices/rooms the GIS will be installed ? How are the language abilities of the staff in relation to the language of software manuals available ? How permanent will be the assignment of the staff to the GIS ? Up to which level staff can be trained during project execution/GIS implementation ? After the HRA, the methodology has to be selected and defined accordingly ! GIS Project   Fig.8: Sample Screen for Data Entry to DBMS   Fig.9: Sample Screen for Data Entry to GIS (Digitization)   Fig.10: Sample Screens for Data Retrieval   In total, 18 modules have been developed. Most of them are mentioned earlier in Parts 6 and 7. These ILUD modules run on DOS, Windows 3.x, Windows 95 and in near future on Solaris (workstation). Many of them include internal error trapping routines.       To give an idea of the magnitude of the user interface software: Presently, 1462 kB of source codes for the GIS (sml files), 916 kB of source codes for the DBMS (prg files), 78 kB of other source codes (Pascal, DOS batches, Lotus macros), 198 kB auxiliary data files have been developed. Programs have been distributed only in compiled form (Clipper compiler for DBMS to generate exe file, pseudo ArcInfo compiler to generate cml/cmx files) for two reasons: Performance, speed Necessity to follow defined codes and standards Intellectual property right, copyright situation The entire software fits compressed on three floppy disks (two for GIS, one for DBMS). All programs are bi-lingual (English and Indonesian). Technical Details The success showed that all maps which have been compiled by the ILUD software (interfaces on top of Arc/Info and dBase IV) are structurally good, follow the same data coding, can be exchanged easily and fulfill data quality standards. 8.3 Standard output It is important that data which have been collected and entered in a database, can be retrieved and transferred (or displayed or printed) in an easy and particularly standardized way ! Only when an information system can supply the data in the way as requested by the users of the data is the system justified. If, for example, the user wants to have a look at the hardcopy map for orientation only, he can be supplied with a hardcopy map. If the user wants to further process the data digitally, he can be supplied with the GIS digital data (coverage).   As of 1997, the most common output formats are: HPGL2 format for all plotters and many page printers BMP format for all Windows 3.x and Windows 95 software, additionally can be converted with many graphics or utility programs to other raster formats To offer a wide variability of outputs for the customer, the GIS is recommended to produce output in (at least) those two formats ! GIS Project The project has a standard layout for hardcopy map production at the scales of 1:25,000, 1:50,000 and 1:100,000 at DIN A0 size, following the national map grid index. Digital outputs of the project's mapping are various graphics formats such as BMP, PCX or PLT files, or the original data in their coverage, xBase, GIS file formats. Beside the 'standard' output maps of land use and land use plans, the system is capable to respond on special requests, such as: Generalized maps (example, only the main land use class, or the top two land use class levels etc.), Maps without labels, Maps which show only particular areas of interest (example, only bare land or only industrial areas), Maps which are defined by an administrative unit, not a square map grid (example, land use map of a given Kabupaten), Maps with English legend.  Ease of backup is another important issue and important for operationality of GIS applications: For complete and easy transfer of collected data, a software-guided creation of data copy sets is possible: Through a few menu-driven keystrokes, the operator makes a full copy of the original data, which at the user's side can be 'imported' through an ILUD routine, or through standard commercial software (e.g. Pkzip, dBase, DOS, Arc/Info etc.). 8.4 Marketing strategy and PR 'Information not used is information better not collected !' To enable potential clients to make use of these maps and to integrate this information in their planning efforts, they have to be aware of the data and all facilities. Various activities, intentions and plans for such 'public relation' work have been set up in the project: The most global PR system is the Internet. A homepage ( http://www.geocities.com/Tokyo/2439/) has been set up, which shows the data progress achieved, the facilities of the system, the technical specs and options to contact the agency for data and technical advise. Data requests can be made through the Internet. After having been cleared by BPN officials, data can be transmitted on disk or through the Internet. Metadata are given to the National Mapping Agency of Indonesia in regular intervals. They incorporate these metafiles in their national map catalogue. A policy of distributing and/or selling data is in the process of being defined. Cost assessments to define a 'service fee' have been calculated: 12 US$ per map sheet: Reproduction costs, 67 US$ per map sheet: Data collection and management costs, assuming break-even-point of 100 sold copies, 197 US$ per map sheet: Data collection and management costs including institution building, training, methodology setup, assuming break-even-point of 100 sold copies 8.5 Quality Control Quality Control is very important, if data are made public to clients - or sold - and if actual use (here: land use planning and monitoring) is made of the data. The user has to know, with which reliability level he can use the data. In the described project, quality control is understood in two stages: QC as a means of monitoring the production and all its individual production steps ('quality control management' or 'quality assessment') QC as a guarantee for the produced quality, with thresholds to be fulfilled against ground truth ('quality control check' or 'final approval and release of product'): 90% of land use classes checked through correlation matrix, 1 mm graphical deviation of boundaries at reference scale, 100% formal data integrity have to be ok. While the first aspect has been described in the project in form of manuals and applied through on-the-job training, the later has so far only been preliminary defined for land use mapping. PART III: EVALUATION AND OUTLOOK 9. Concluding Evaluation and Outlook on Future Development 9.1 Evaluation and Recommendations It was shown in this Paper, that the setup of a GIS project is a complex task, which requires consideration of various fields - and expertise accordingly: To repeat, the three preconditions of the GIS concept (user friendliness, standardization, performance), the four frame components (objective orientation, application development, marketing, management), and the three execution levels (concept, methodology, techniques). With many crucial aspects been shown, attention shall be drawn again on: Human resource assessment: This is most important to start with, Techniques: This is the most time consuming, Management: This might take the longest time, and is maybe the most important for the diffusion. During project execution, many unforeseeable problems can occur. Following recommendations shall try to minimize the impact of these problems: Balanced input to individual activities and tasks, monitored by the supervisor/ team leader Maintaining balance between academic and fast-and-dirty approach, for an applicable methodology Stressing the importance of standardization, and the maintenance/update of standardization; staff has to follow standardization rules Sufficient memory and harddisk capacity for the computers, software to be selected under the point of view of compatibility and avoidance of memory conflicts Avoid data incompatibility at updates of software or operating system by selecting right software and OS (expected life span of software and data formats) After installation and professional configuration of hardware and software, staff not be allowed to change configuration. Power supply has to be adequate, UPS have to be installed for all devices. Permanent viruses scanning Budget flexible enough for new technologies, software and hardware procurements in due course of the project; contingency amount sufficient Sufficient diversification of training (core training for application developer vs. application training for users) Assignment of staff responsible for hardware and data Assignment of highly skilled staff  Attempt to speed up management adaptation and/or re-structuring, as this follows only slowly and long after technical innovation; fasten actual GIS diffusion in the agency. As it was shown, a fundamental behavioral change opens up to us - with a great chance as well as demand for GTZ to step in. In the long term, emphasis on the future development and implementation of GIS projects has to handle both techniques and data, as well as the policies and strategies constructed, using them as a monitoring and management tool. 'People are easily fascinated by hardware and software for image processing and by the pretty pictures produced. Technologists prepared the maps and databases, while decision makers, politicians, government planners, and private corporations ignored them. Apart from cartography, little in the way of concrete outcome could be credited to the technologists.' (A.M.North, Remote Sensing and GIS in Asia, GIS Asia Pacific, p.22, August 1996) In any GTZ-supported GIS setup, it is important to address the decision makers: the politicians, the planners, the investors, the 'entrepreneurs', the land users, to be aware of the facilities of the system and to make use of the data - and to give constructive feedback to the managers, designers and developers of the information system. In very near future, it should be up to the 'decision makers' to use all these beautiful tools! And then we, the 'GTZ-GIS experts', can ask ourselves: Are we doing enough for these 'decision makers', the politicians, government bodies and corporation executives ? Their actions will finally determine whether development will be sustainable or not! 9.2 Future Relevance of GIS as Part of 'Appropriate IT Transfer' Outlook to the 21. Century The implementation of a GIS in and the transfer to developing countries will result in adequate supply of information and to a sound planning procedure, as posted in Part 2, at a low cost ! From the cooperation point of view, it is important not to let the gap in development and technology between developing and developed countries widen too much. Information technology develops very fast. Transfer of IT has to cope with this pace. GIS is part of IT; transfer has to be made possible under the consideration of appropriateness. GIS is a field with very little requirement for such an IT transfer: PC, input and output devices, and a telephone line. This is all what is required in the mainly software and data based field of GIS ... beside the human. IT transfer to developing countries is not only a challenge, it can also be a great chance for developing countries: 'Brainware is not site-specific'. In the IT era with development of human resources, both rather advanced task (e.g. programming, application developing) as well as labor intense jobs (e.g. data entry) can be outsourced from companies in developed countries to less developed countries. They can then form a resource of income and contribute to a better balance of trade. Today, this is already practiced in a few countries such as India, East Europe, Russia etc. In future, with further globalization trends and with an ever stronger Internet, this will become more important. It might give a chance to countries to survive, particularly countries where natural resources are limited, but with a 'demographic potential' of people with a relatively high education and awareness level. GTZ can contribute in its technical cooperation and promote GIS efforts as part of the IT future to be transferred in an appropriate way. **** The future of the use and importance of GIS is very bright. The technology of GIS has reached a high level of usefulness. It has been shown, that a well-defined and set-up system like the one described can contribute to development and cooperation in the context of appropriate IT transfer. It is hoped that this Paper can contribute to transfer expertise to new projects which are being set up in the frame of technical cooperation of GTZ. APPENDIX 1a: Map Themes     Theme Type   A Administration Line   B Administration Polygon   C Contour Line   D Land availability Polygon   G Altitude Polygon   H Hydrology Line   I Location permits Polygon   K Communication Line   L Slope Polygon   M Land use monitoring Polygon   N Suitability assessment (per LUT) Polygon   P Waterbody Polygon   Q Land use Polygon   R Govt. development policy Polygon   S Annotations Annot.   U Spat. land use management plan Polygon   W Land use observation points Point   X Soils Polygon   Y Previous land use Polygon   Z Draft land use, spectral classification Polygon   APPENDIX 1b: Standard File Structure of Land Use Maps     Item name: Type: Width: Decimals:     Sample:   AREA N 13 6   .....   PERIMETER N 13 6   .....   Internal id N 11     .....   User id N 11     (int.id-1)   POLYLAB Ch 8     B   CLAS1 Ch 11     4.1.1   CLAS1_PRC N 3     100   CLAS1_NAM Ch 50     Sawah irig. 2xpadi   CLAS1_NMR N 13 10   4.0101   CLAS2 Ch 11         CLAS2_PRC N 3     0   CLAS2_NAM Ch 50         CLAS2_NMR N 13 10       PROP N 2     32   TAHUN Ch 2     95   QC N 2         VERSI N 5 2   1.91 APPENDIX 2: Sample Maps APPENDIX 2a: Sample for Land Use Map: West-Jawa (Karawang) APPENDIX 2b: Sample for Land Use Map: Kalimantan (1614-522) APPENDIX 2c: Sample for Spectral Classification Map (2305-423) APPENDIX 2d: Sample for Land Availability Map (Cisarua) APPENDIX 2e: Sample for Land Suitability Map: Tea (Cisarua) APPENDIX 2f: Sample for Land Suitability Map: Urban (Cisarua) APPENDIX 2g: Sample for Government Policy Map (Cisarua) APPENDIX 2h: Sample for Land Allocation Map: Tea Plantation (Cisarua) APPENDIX 2i: Sample for Land Allocation Map: Urban Extension (Cisarua) APPENDIX 2j: Sample for Land Allocation Map: Afforestation (Cisarua) APPENDIX 2k: Sample for Land Use Map: Recent (Pesalakah) APPENDIX 2l: Sample for Land Use Map: Previous (Pesalakah) APPENDIX 2m: Sample for Monitoring (Land Use Change Detection)(Pesalakah) APPENDIX 2n: Sample for Monitoring (including location permits) (Pesalakah) This paper has been prepared for publication at GTZ Gerhard Bechtold mail@GerhardBechtold.com Information System Specialist Project LREPP-II (GTZ), Indonesia