National Data Spatial Infrastructure: the Case of Brazil

National Spatial Data Infrastructure: The Case of Brazil

The findings, interpretations and conclusions expressed herein are entirely those of the author(s) and do not necessarily reflect the view of infoDev, the Donors of infoDev, the International Bank for Reconstruction and Development/The World Bank and its affiliated organizations, the Board of Executive Directors of the World Bank or the governments they represent. The World Bank cannot guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply on the part of the World Bank any judgment of the legal status of any territory or the endorsement or acceptance of such boundaries.

Rights and Permissions

The material in this publication is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The International Bank for Reconstruction and Development/The World Bank encourages dissemination of its work and will normally grant permission to reproduce portions of the work promptly.

For permission to photocopy or reprint any part of this work, please send a request with complete information to infoDev Communications & Publications Department; 2121 Pennsylvania Avenue, NW; Mailstop F 5P-503, Washington, D.C. 20433, USA; telephone 202-458-4070; Internet: www.infodev.org; E-mail: [email protected].

All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, The World Bank, 1818 H Street NW, Washington, D.C. 20433, USA; fax: 202-522-2422; e-mail: [email protected].

Cover design by infoDev

Cover photo by www.hatw.net

To cite this publication: Davis Jr., Clodoveu A. and Frederico Fonseca. 2011. National Data Spatial Infrastructure: The Case of the Brazil. Washington, D.C: infoDev / World Bank. Available at http://www.infodev.org/publications

iii

National Spatial Data Infrastructure: The Case of Brazil

Table of Contents

Table of Contents ……………………………………………………… iv Preface ……………………………………………………… vi Acknowledgments ……………………………………………………… viii About the Authors ……………………………………………………… ix Abbreviations and Acronyms ……………………………………………………… x Abstract ……………………………………………………… xiii 1. Executive Summary ……………………………………………………… 1 1.1 Introduction ……………………………………………………… 1 1.2 Societal context ……………………………………………………… 1 1.3 Historical perspective ……………………………………………………… 1 1.4 Current situation ……………………………………………………… 2 1.5 Lessons learned ……………………………………………………… 3 1.6 Lessons for developing countries ……………………………………………………… 4 1.7 Long-term perspectives ……………………………………………………… 4 1.8Conclusions ……………………………………………………… 6 1.9 Summary of recommendations ……………………………………………………… 8 2. Societal Context ……………………………………………………… 9 2.1 Country overview ……………………………………………………… 9 2.2 Demographics ……………………………………………………… 10 2.3 Economy ……………………………………………………… 10 2.4 Society ……………………………………………………… 11 2.5 Environment ……………………………………………………… 12 2.6 Government and political system ……………………………………………………… 12 2.7 Science and technology ……………………………………………………… 12 2.8 Information technology ……………………………………………………… 13 3. Historical Perspective ……………………………………………………… 14 3.1 Introduction ……………………………………………………… 14 3.2 Relationship among early adopters ……………………………………………………… 15 in the Brazilian GIS scene 3.3 The role of private companies ……………………………………………………… 16

National Spatial Data Infrastructure: The Case of Brazil

3.4 Final remarks ……………………………………………………… 16 4. Current Situation ……………………………………………………… 17 4.1 Political issues ……………………………………………………… 17 4.2 Organizational issues ……………………………………………………… 18 4.3 GIS applications ……………………………………………………… 20 4.4 Funding issues ……………………………………………………… 21 4.5 Human resources ……………………………………………………… 22 4.6 Available datasets ……………………………………………………… 24 4.7 Standards ……………………………………………………… 25 4.8 Access issues ……………………………………………………… 27 4.9 Software and network issues ……………………………………………………… 27 4.10 International issues ……………………………………………………… 30 5. Best Practices Examples ……………………………………………………… 31 5.1 City of Belo Horizonte: From ……………………………………………………… 31 mapping to GIS to SDI 5.2 Bahia State: IDE-BA and ……………………………………………………… 34 Geoportal Bahia 5.3 Sao Paulo State: IDEA and ……………………………………………………… 35 DataGEO 5.4 Minas Gerais State: IEDE ……………………………………………………… 36 5.5 INPE: Remote sensing SDI ……………………………………………………… 37 6. Lessons Learned ……………………………………………………… 39 7. Long-Term Perspectives ……………………………………………………… 41 8. Conclusions ……………………………………………………… 43 8.1 Summary of recommendations ……………………………………………………… 47 9. Appendices ……………………………………………………… 48 9.1 Brazilian Government – The ……………………………………………………… 48 Executive Branch 9.2 Members of CONCAR ……………………………………………………… 49 10. References ……………………………………………………… 51

National Spatial Data Infrastructure: The Case of Brazil

Preface

This report was prepared as part of the infoDev study “Using Geographic Information Systems and Spatial Data Infrastructure for Monitoring Development Outcomes”. The specific objective was to make an analysis of the potential of the use of spatial data for modeling and monitoring development outcomes and how standardization of the creation and use of geographic data can improve it.

Countries with large territories and in a stage of newly advanced economic development represent both a challenge and an opportunity to the use of Spatial Data Infrastructure (SDI) in monitoring development. But SDIs are much more than just than an electronic map creation device. SDIs require users engaged in the creation and use of geographic information. These users need to be trained in techniques for spatial data handling and analysis. They also need to be aligned with the country‟s broad policies rather than just focusing on immediate problem solving.

The new computer technologies represent also another challenge and potential opportunity for the use of SDI in the monitoring of development outcomes. Current data sharing techniques allow joining several different data-providing organizations, without interfering with their technological choices, production processes, or internal culture. Providing shared access to data is only a first step for SDIs, and the next step is creating information services. However, there are several obstacles to achieve wide availability of spatial data and information that can actually make a difference in complex problem-solving situations, involving multiple actors, with different (and often conflicting) world views. There is a need for more interaction among users to support cooperation, discussions, and community building. Users must be motivated to contribute and to participate, and better tools for data discovery must be developed, especially considering semantic aspects, since interdisciplinary collaboration is a necessity. In order to be effective in environmental monitoring SDIs need to take into consideration citizens, scientists and policy makers and help enabling them in the creation of development policies that will lead to sustainability.

Dr. Clodoveu Davis and Dr. Frederico Fonseca prepared the report based on their first hand experiences in developing early GIS projects, which later became part of the initial Brazilian spatial data infrastructure. The report reviewed relevant studies on the Brazilian SDI, analyzed the recent legislation that created the Brazilian SDI, and interviewed stakeholders in the Brazilian GIS and SDI projects. Two early studies, Considerations from the Development of a Local Spatial Data Infrastructure by Davis and Fonseca, and Networks of Innovation and the Establishment of a Spatial Data Infrastructure in Brazil by Camara, Fonseca and others helped framing the Brazilian transformation process from a series of loosely coupled GIS projects in to a well-established SDI.

The report was also able to incorporate the latest changes in Brazil‟s SDI scene. A recent executive order, issued in November 2008, defined and created INDE (Infraestrutura Nacional de Dados Espaciais), the Brazilian spatial data infrastructure. It corresponds to the U.S. National Spatial Data Infrastructure (NSDI), to the European INSPIRE, and, more recently, to the United Nations Spatial Data Infrastructure (UNSDI).

This new initiative from the Brazilian government has the challenge to gather the successful but independent SDI projects in Brazil. The spirit of the legislation is promising and focuses on leveraging on what already exists, and on encouraging partnerships and sharing of technology and data. Although Brazil is a country that

National Spatial Data Infrastructure: The Case of Brazil relies often on the Federal government for development projects, GIS is an exception. Projects at the local and state level are many and thriving. The report shows how the new legislation might help the creation of new projects and improve the use of current ones.

The report helps understanding the long-term establishment and sustainability of SDIs in Brazil. It highlights the fact that the perception of SDI stakeholders is fundamental to the management of political and technical development of the Brazilian SDI. The report also analyzes the potential impact of new web technologies on SDIs. In order to achieve sustainability, SDI projects must ensure that information providers fund their own projects but must also be willing to share their results. This aspect is novel for public sector budgeting in Brazil, and might be one of the keys for the success of the Brazilian SDI.

vii

National Spatial Data Infrastructure: The Case of Brazil

Acknowledgments

This report could not be written without the collaboration of numerous colleagues and friends, most of which we met throughout our 20 years in the Brazilian GIS community. Some of these professionals and academicians currently occupy key positions in GIS-related organizations, in various capacities. Within that group, we specially thank the colleagues in institutions such as INPE, IBGE and others, that provided us with their valuable insights and information, personally or by responding to our requests for interviews and data. We will not list their names here for fear of forgetting someone, and we will present these acknowledgments personally whenever an opportunity arises. We will only mention Gilberto Câmara, the Director of INPE and our long time academic partner, stating that parts of this report stem from previous joint work.

We also wish to thank infoDev , especially Tim Kelly, team task leader of the overall “Using GIS and SDI for Monitoring Development Outcomes” report; The Korea Trust Fund on ICT for Development, for sponsoring this project; Marisela Montoliu Muñoz, for the opportunity of getting deeper in the foundations of Brazilian SDI; Bruce McCormack and Paul Scott, for their insightful and detailed revisions; Samhir Vasdev, for reviewing and preparing this document for publication; and all reviewers whose suggestions were deeply appreciated.

Finally, we thank Universidade Federal de Minas Gerais and Pennsylvania State University, home of our academic lives.

Clodoveu A. Davis Jr. Belo Horizonte (Minas Gerais, Brazil)

and

Frederico T. Fonseca Pennsylvania, United States

viii

National Spatial Data Infrastructure: The Case of Brazil

About the Authors

Clodoveu Augusto Davis Junior received his B.S. degree in Civil Engineering in 1985 from the Universidade Federal de Minas Gerais (UFMG), Brazil. He obtained M.Sc. and Ph.D. degrees in Computer Science, also from UFMG, in 1992 and 2000, respectively. He led the team that conducted the implementation of GIS technology in the city of Belo Horizonte, Brazil, and coordinated several geographic application development efforts. Currently, he is a professor and researcher at the Computer Science Department of UFMG. His main research interests include spatial data infrastructures, geographic databases, urban GIS, spatial data infrastructures, and multiple representations in GIS.

Frederico Torres Fonseca is the Associate Dean for Undergraduate Studies and an Associate Professor in the College of Information Sciences and Technology at Penn State. Fonseca‟s research is focused in three areas: Geographic Information Science, Information Science, and Information Systems, with an emphasis on Ontology-Driven Geographic Information Systems. He got his Ph.D. in Spatial Information Science and Engineering in 2001 at the University of Maine. He received the 2006 Researcher Award by the University Consortium of Geographic Information Science (UCGIS) for the foundational work on ontologies in GIS.

National Spatial Data Infrastructure: The Case of Brazil

Abbreviations and Acronyms

AR – Arquitetura Referencial de Interoperabilidade dos Sistemas Informatizados de Governo – Referential architecture for interoperability of government information systems

CISL – Comitê Técnico de Implementação do Software Livre – Technical Committee for the Implementation of Free Software

CONCAR - Comissão Nacional de Cartografia – National Committee of Cartography

CNPQ – Conselho Nacional de Desenvolvimento Científico e Tecnológico – the Brazilian Science Foundation

CPqD - Centro de Pesquisa e Desenvolvimento em Telecomunicações – Telecommunications Research and Developmente Center

CPRM – Companhia de Pesquisa de Recursos Minerais – the Brazilian Geological Survey

DBDG - Diretório Brasileiro de Dados Geoespaciais – INDE‟s central data catalog

EMBRAER - Empresa Brasileira de Aeronáutica S.A. – Brazilian Aeronautics Company

EMBRAPA – Empresa Brasileira de Pesquisa Agropecuária – The Brazilian Agency for Agricultural Research

E-Ping – a set of directives for interoperability among Brazilian government organizations e-PMG – Padrão de Metadados do Governo eletrônico – A metadata standard for e-government

FatorGIS – a media company that started out in 1993 publishing a small magazine on GIS

FOSS – Free and open source software

GeoBrasil – GIS conference series which started running in 2000

GI – Geographic Information

GIS – Geographic Information Systems

GIS-BH – The GIS project of the city of Belo Horizonte, Brazil

GIS Brasil – GIS conference series which run from 1993 to 2004

GPS – Global Positioning System

GSDI – Global Spatial Data Infrastructure

IBGE – Instituto Brasileiro de Geografia e Estatística – The Brazilian Institute of Geography and Statistics

IDE-BA – Infra-estrutura de Dados Espaciais da Bahia – the spatial data infrastructure of the state of Bahia

IGA – Instituto de Geociências Aplicadas – Institute for Applied Geosciences

National Spatial Data Infrastructure: The Case of Brazil

INDE – Infra-estrutura Nacional de Dados Espaciais – the Brazilian spatial data infrastructure

INPE – Instituto Nacional de Pesquisas Espaciais – Brazilian National Institute for Space Research

INSPIRE – Infrastructure for Spatial Information in the European Community, the European SDI project

IT – information technology

MDS – Ministério do Desenvolvimento Social e Combate à Fome – Ministry of Social Development and Fight against Hunger

MMA – Ministério do Meio Ambiente – Ministry of Environment

MGB – Perfil de Metadados Geoespaciais do Brasil – Brazilian spatial metadata profile

MPOG – Ministério do Planejamento, Orçamento e Gestão – Ministry of Planning, Budget and Management

MundoGEO – a GIS media company, which is a spin-off of FatorGIS and includes a webportal and a conference series.

NSDI – American National Spatial Data Infrastructure

ODF – The Open Document Format for Office Applications is an XML-based file format for representing electronic documents

OSS – Open Source Software

PRODEB – Companhia de Processamento de Dados do Estado da Bahia – Bahia state‟s information technology company

PRODABEL – Empresa de Informática e Informação do Município de Belo Horizonte S/A – Information and Informatics Company of the city of Belo Horizonte

Protocolo Brasília – an agreement among departments of the Brazilian government to establish the use of ODF, the Open Document Format, as the standard for document sharing

PUC Rio – Pontifícia Universidade Católica do Rio de Janeiro – Catholic University of Rio de Janeiro

PUC SP – Pontifícia Universidade Católica de Sao Paulo – Catholic University of São Paulo

R&D – Research and Development

REBATE – a spatial information technologies research network composed by public and private sectors and led by the Federal University of Bahia

SDI – Spatial Data Infrastructures

SEI– Superintendência de Estudos Econômicos e Sociais da Bahia – Social and economic studies organization from the state of Bahia

SERPRO – Serviço Federal de Processamento de Dados – The Federal Information Technology Company

SMA-SP – Secretaria do Meio Ambiente do Estado de São Paulo – São Paulo State‟s Environment Secretariat

SLTI – Secretaria de Logística e Tecnologia da Informação – Secretariat of Logistics and Information Technology

National Spatial Data Infrastructure: The Case of Brazil

SPRING – GIS software developed by INPE

SOA – Service-oriented architecture

SUS – Sistema Único de Saúde – Unified Health System

TecGraf – the Computer Graphics Group at the Catholic University in Rio de Janeiro

TerraLib – an open-source GIS component library developed by INPE and TecGraf

UFMG – Universidade Federal de Minas Gerais – Federal University of Minas Gerais

Unicamp – Universidade Estadual de Campinas – Campinas State University

UNSDI – the United Nations Spatial Data Infrastructure

VCGE – Vocabulário Controlado do Governo Eletrônico – Controlled vocabulary for electronic government

XML – Extensible Markup Language

XSL – Extensible Stylesheet Language, a set of recommendations for defining XML document transformation and presentation

xii

National Spatial Data Infrastructure: The Case of Brazil

Abstract

This report makes an analysis of the potential of the use spatial data for modeling and monitoring development outcomes in Brazil. The report focuses on spatial data infrastructures (SDI) to support standardization of creation and use of geographic information. The report addresses the challenges and opportunities for the establishment of a SDI in Brazil. The following areas are covered: policy issues and legislation; organizational issues; GIS applications; funding issues; human resources; available data sets; standards; access issues; software; and international issues. The report also describes some best practices at the national, regional and local levels. It includes the early SDI experiences of INPE at the federal level, the initiatives at the states of Bahia, São Paulo and Minas Gerais, and the city of Belo Horizonte at the local level.

The report analyzes the latest changes in Brazil‟s SDI scene. It discusses the potential strengths and shortcomings of a recent executive order, issued in November 2008, that defined and created INDE (Infraestrutura Nacional de Dados Espaciais), the Brazilian spatial data infrastructure. INDE is an attempt to gather the successful but independent SDI projects in Brazil. The spirit of the legislation is promising, since it focuses on leveraging on what already exists, and on encouraging partnerships and sharing of technology and data, while establishing a no cost and open access policy.

Although Brazil is a country that relies often on the Federal government for development projects, GIS is an exception. Projects at the local and state level are many and thriving. The report shows how the new legislation might help the creation of new projects and improve the use of current ones.

Finally the report makes recommendations indicating which areas need funding and where are the strengths that should be encouraged, also providing arguments for the generalization of Brazilian initiatives by other countries. The report indicates that INDE is a promising initiative that might help Brazil‟s path towards development. In a large country with many pressing environmental issues, geographic information made broadly available and competently used is a fundamental tool towards achieving the millennium development goals.

xiii

National Data Spatial Infrastructure: The Case of Brazil

1. Executive Summary

More than half of Brazil‟s territory is covered in 1.1 Introduction forests; the country has the world‟s largest This report was prepared as part of the infoDev rainforest, the Amazon. Intensive enforcement of study “Using Geographic Information Systems environmental laws and policies has managed to and Spatial Data Infrastructure for Monitoring reduce the rhythm of deforestation of the Development Outcomes”, covering the situation Amazon, from over 27,700 km2 in 2004 to less in Brazil. The specific objective was to make an than 7,500 km2 in 2009. The country has declared analysis of the potential of the use spatial data for a total of 18.7% of its territory as protected areas. modeling and monitoring development outcomes Furthermore, 12.4% of the territory is delimited as and how standardization of creation and use of Indian reservations. Brazil holds 12% of the geographic data can improve it. world‟s surface freshwater supplies, in several important basins besides the Amazon. 1.2 Brazil: societal context (overview) Brazil is a federal republic, ruled by a president Brazil is the fifth largest country in the world, the that is both chief of State and leader of the largest in South America, with over 8.5 million government. Dilma Rousseff is the current square kilometers, which is about 47% of South president, having taken office in 2011. The America. As a frame of reference, Brazil is larger legislative branch is bicameral, with 81 Senators (3 than the continental U.S. and almost twice the size per state) and 513 members of the House of of the countries that compose the European Representatives. General elections take place Union. The country is divided into 26 states and regularly every two years, alternating local and the Federal District, and over 5,500 municipalities. state/federal races. Population exceeds 190 million people. About one quarter of Brazilian homes have a Brazilian economy has been on the rise for the last microcomputer. In 2008, there were 21 telephone years, and the country has suffered little impact ground lines and 78 mobile phones per group of from the recent international banking crisis. Brazil 100 citizens, along with 9.6 million land-based is a traditional source of commodities, but hosts broadband Internet connections. Such healthy industrial and agricultural sectors as well. connections are unevenly distributed throughout The energy matrix stands out for its large share of the country, following the inequalities in social renewable sources, including hydropower and bio indicators. A plan to expand and disseminate fuels. broadband accesses has been issued recently, but its implementation has not started so far. As in the The economic stability period led 12.8 million case of physical infrastructure, widespread quality Brazilians out of absolute poverty conditions, but Internet access remains a challenging problem. illiteracy is still high and improving the general education indicators are a major challenge. The 1.3 Historical perspective public health care system is unified in the whole country, but is seen as insufficient and of low- The adoption of GIS (Geographic Information quality (over a fifth of the population has a private Systems) in Brazil begins in middle 80s. The health plan or insurance), even though it takes up transition from pure GIS projects to a broader 4.8% of the GDP. Brazil hosts large social view that led to SDI (Spatial Data Infrastructures) inequalities, with uneven income distribution, is hard to pinpoint. Because the number of although inequality has been slowly decreasing government institutions involved in GIS since the throughout the last decade. The country‟s Human beginning, some of the SDI aspects, especially on Development Index reached 0.813 in 2007, data organization and sharing/distribution were ranking 75th worldwide. present in many early GIS projects.

National Data Spatial Infrastructure: The Case of Brazil

There were a set of leading institutions which have INDE (Infraestrutura Nacional de Dados Espaciais), played an important role in pioneering GIS the Brazilian spatial data infrastructure. It technologies in Brazil. These early adopters (1986- corresponds to the American National Spatial 1994) combined R&D in spatial information with Data Infrastructure (NSDI), to the European the production and dissemination of spatial data. INSPIRE, and, more recently, to the United They formed a collaborative network that was Nations Spatial Data Infrastructure (UNSDI). instrumental to ensure that such a large country could benefit from spatial information As required by the executive order, an action plan technologies. The network was successful because has been created for the development and it combined expertise in different areas of spatial dissemination of INDE (CONCAR 2010). The information technology. From 1994, the growth in plan follows the traditional definition of a SDI, the number of adopters and the increase in the along the lines set forth by the American Federal private market for software, hardware and services Geographic Data Committee, which says that determined the path towards maturity of the GIS SDIs consist of not only data and technological market. tools, but also involve people, policies, and standards. More specifically, the plan defines Among the many participants in the development INDE‟s objectives as creating metadata catalogs, of the Brazilian SDI, there were some key integrating and sharing geospatial data created and organizations, originating from different sectors of maintained by different Brazilian government the economy with varying missions. One of them institutions so that the data is easily found, is INPE (Instituto Nacional de Pesquisas Espaciais), browsed, and used through the Internet. In the the Brazilian National Institute for Space spirit of a traditional SDI, it states clearly that the Research, is a major research institute funded by data and metadata are to be created and the federal government, who successfully create maintained by their original producers. and disseminate their own software since 1986. Another one is PRODABEL (Empresa de INDE is being implemented under the Informática e Informação do Município de Belo Horizonte supervision of CONCAR (Comissão Nacional de S/A – Information and Informatics Company of Cartografia), the Brazilian National Committee of the City of Belo Horizonte), is a information Cartography, which is under the Ministry of technology company owned by a local Planning, Budget and Management (MPOG, government which has developed one of the most Ministério do Planejamento, Orçamento e Gestão). successful urban GIS projects in Brazil, in the CONCAR congregates representatives from 17 of early 1990s. Both experiences are described in the 24 ministries, two secretariats of the greater detail in the main report, under Best Practice President‟s office, the cartographic services of the Examples, along with other significant initiatives. Brazilian military, and a representative from the class association of the aerial surveying companies. Brazil has been largely successful in setting up IBGE (Instituto Brasileiro de Geografia e Estatística - qualified institutions that produce and distribute Brazilian Institute of Geography and Statistics) is spatial data. The collaborative network of early the executive institution that technically and adopters was instrumental in ensuring that such a administratively supports CONCAR. IBGE is large and diverse country could benefit from the responsible for creating, implementing and widespread adoption of spatial information maintaining the SIG Brasil Web geoportal, which technologies. This collaborative network was should provide access to all of INDE‟s geospatial successful because its members were able to (1) data and services. The portal will host the central combine specialized expertise in different data catalog, which is called Diretório Brasileiro de segments of spatial information technologies and Dados Geoespaciais (DBDG). Data should be free (2) view knowledge as a public consumption good. (no cost) to any registered user. INDE is already operational, at http://www.inde.gov.br. 1.4 Current situation Other SDI creation initiatives are taking place at The current situation of SDI in Brazil is defined the state and local levels. The main report by a recent executive order (Decreto No. 6.666, de 27 de novembro de 2008) that defined and created

National Data Spatial Infrastructure: The Case of Brazil discusses details on these projects, under Best branches, at every level. One of the strongest Practices Examples. communities in the public software portal supports i3Geo, an assemblage of geospatial Funding for INDE and for most other SDI software geared towards the dissemination of development projects comes mostly from spatial data over the Web. The main components budgetary resources, but in a few instances initial of i3Geo are PostGreSQL, MapServer and a Web- resources come from a small part of development based viewer. I3Geo is very well known projects financed by the World Bank, especially on throughout the country, and is being employed in physical infrastructure construction. Charging for numerous projects. INPE developed and data access or use is relatively rare in Brazil maintains TerraLib, an open source library for nowadays, and this is reinforced by the executive GIS and associated applications, which is the base order that created INDE, which mandates free of other products. data access. Other SDI projects follow suit. INPE has also an open access policy regarding its 1.5 Lessons learned and insights gained extensive library of remote sensing images. This policy not only provides scientists and NGOs Nowadays, GIS technologies are widely available, from anywhere in the world with much needed both as proprietary and free software. data, but it also enables independent verification International standards are guiding both the of deforestation numbers. development of such software and the organization of large repositories of geographic All the necessary standards for SDI data, which can be searched and discovered with implementation are in place, with national the help of metadata, which in turn are also versions developed and promoted by CONCAR governed by international standards. The current and its affiliated institutions, especially IBGE. combination of technological tools and Along with mapping (cartography, geodesy, international standards is showing in practice that surveying) standards, there are regulations in place SDIs can be envisioned, designed and regarding geospatial metadata and a broad implemented to cover a broad range of scales, interoperability architecture, called e-Ping. E-ping from global to local, based on the same establishes the use of XML, XML Schema, UML, fundamental architecture. As to people, the report XSL and other well-known Web standards, fosters shows that Brazil has a diversified and capable a gradual shift towards service-oriented academic sector, with a worthy presence in world architecture, and provides an architectural model science, and therefore the country is capable of for government systems. E-Ping adopts the most educating people in all required subject related to important Open Geospatial Consortium (OGC) SDI. There is, nevertheless, a strong market standards, and recommends the adoption of pressure on highly specialized professionals, others. resulting from the recent increase in economic growth. In 2003, a free software strategy was included as part of the national e-government policy. This The most interesting part of the SDI equation action came as a result from a previous movement regards policies. Coherent and effective policies by state and municipal administrations, which are only possible in a context of institutional perceived in the increasing availability of high- maturity. Taking Brazil as an example, we observe quality free software an opportunity for that the creation of INDE was possible because rationalizing expenditure in IT. Currently, the free various conditions were met. First, there is a software initiative is led by a committee (CISL – national geography/cartography/statistics bureau Comitê Técnico de Implementação do Software Livre, (IBGE) in place, with a long term involvement in Technical Committee for the Implementation of geographic information and a vision on the Free Software), which meets periodically and demands for GI from the government and the publishes its deliberations on the Web. The society in general. IBGE, in turn, is part of a initiative also maintains a portal for the promotion broader arrangement of cartographic institutions, of “public software”, i.e., software that can be all of which have undergone a transition from shared among governmental organizations and conventional mapping to GIS technologies in the last two decades. When CONCAR, led by IBGE, 3

National Data Spatial Infrastructure: The Case of Brazil set forth the initiative of creating INDE, disseminate the necessary technical knowledge. provisions were made to allow the participation of Administrators are also needed, in order to plan the most important institutions in the process, and the implementation of something as complex as the resulting action plan has arisen from an SDI, while locating and ensuring sufficient consensus, rather than from a centralized planning funding. decision. As to standards, probably, most countries will be In a sense, one can say that institutional maturity comfortable adopting ISO and OGC international led to the kind of cooperation and agreement standards for their SDIs. Of course, the wide necessary to create something like INDE. Of variety of OGC-compliant free GIS and SDI course, the initiative is in its initial steps, and much software available today also contributes to this remains to be seen as to the reality of funding decision. The Brazilian policy that establishes the INDE‟s operation and to the actual usage of the preference for free software in the public sector is information provided in the infrastructure. IBGE also easily replicated in developing countries, but is currently undertaking an initiative to disseminate governments should be aware that the economy in INDE in GIS-related events countrywide, and is software licenses will probably have to be invested offering support for the establishment of local or in training of competent support and development thematic SDIs that are to become part of the people. national infrastructure. CONCAR and IBGE are working with the objective of encouraging GIS- Considering the most urgent data needs, global enabled organizations to move towards SDI and sources of free GI, such as the digital globe Web to join INDE. If the installation and configuration sites, can easily be used to leverage projects. Some of INDE-compatible server becomes simple companies, such as Google, also offer products enough, many more geographic information that can be used with other data sources, such as sources can join the bandwagon, in turn increasing traditional cartography or existing remote sensing the importance of INDE to the society. It is imagery, along with or instead of their publicly important to ensure that not only governmental or available data. There are numerous reports of “official” data sources are allowed in; there must online, data creation or improvement projects be openings for other types of organizations to cooperatively developed by volunteers, as in the join, making available then, for instance, research case of OpenStreetView. These kinds of initiatives data, community-oriented points of interest, can be easily integrated into an SDI, even though commercial locations, and others. data quality has to be assessed by specialists.

1.6 Useful lessons for developing While the no-cost policy used in Brazil may not countries appeal to institutions that intend to recover part of Naturally, Brazil‟s territorial extension and large the data development costs by charging for data population preclude the immediate application of access, this is a subject that needs to be carefully many of the lessons listed in this section to other debated, considering the target country‟s developing countries. However, all institutional conditions, legislation, and bureaucratic practices. concerns apply. SDI requires a solid array of Also on funding, the development of SDI with a functioning institutions to be successful, especially small share of larger sources engaged in the those that cover critical GI aspects such as implementation policies seems to be a good idea, cartography and data collection. Institutional especially if it is used to monitor the outcomes of maturity is a requirement if SDI policies are the development project itself. expected to work. Since SDI is best seen as a cooperative endeavor, geographic data producers 1.7 Long-term perspectives need to agree on standards and effectively enforce Overall, current SDI-related initiatives share the them if the infrastructure is expected to work. vision of providing useful information to the society, thus considering such information to be a Furthermore, developing countries need to count “public good”. Although most of the required on a reasonable supply fo competent legal framework for data publication is currently in professionals, which will accumulate and place, some SDI creation initiatives seem to be

National Data Spatial Infrastructure: The Case of Brazil politically held back by the lack of legislation that concrete actions have not been taken. In mandates the publication of non-sensitive data, as discussions with potential SDI users, some of in U.S.‟s Freedom of Information Act. However, a them expressed concerns on their capacity to hire promising bill on open access to public fast enough Internet links, and would like to have information (currently in the Brazilian Senate, a backup plan, involving data replication. The after being passed by the House in April 2010), potential impact of networking limitations on SDI presents an opportunity to change this situation1. usage remains to be seen. The bill applies to every branch of government (federal, state, municipal), along with non-profit We see the need for better coordination among private entities that receive public funding. governmental agencies in charge of SDI development and e-government initiatives. For Curiously, there is not much concern as to the instance, there is currently no mention of INDE assessment of the impact of SDIs. Beyond or public geographic information in the Brazilian requirements towards recording the number of e-government program, and INDE‟s portal does accesses, current projects carry no special not mention e-government initiatives either. provision towards dimensioning the demand for Although we agree that there has been little time spatial data and its rate of growth more accurately. to promote such integration, we see it as a natural The lack of such information can lead either to and necessary step in both initiatives, especially over- or underspecified computational when the bill on information access passes in infrastructures. The use of cloud computing Congress. resources can provide an alternative solution for the computational infrastructure. As established by INDE‟s creation decree, the participation of federal institutions is mandatory. Financially, information producers have the intent However, the decree does not include any kind of of supporting the costs of SDI creation and penalties for non-compliance – thus making maintenance, and there is no foreseeable intention participation optional in fact. Nevertheless, the of charging for access. On the contrary, some participation of other federal geographic initiatives, including INDE, specifically require information providers should raise the need for open and costless data access. Some projects motivation, more than enforcement. The count on World Bank financing for starting up, forthcoming legislation on information access can and promise a reasonable maintenance plan with provide a valuable incentive, considering that SDI their own resources. This is in line with older GIS is arguably one of the best ways to disseminate initiatives in Brazil, most of which never charged geographic data in a large scale, and the existence for data. It also reflects in part the cooperative of INDE may render other alternatives less nature of some GIS initiatives, in which costless interesting or economically less viable. In that spatial data interchange has been taking place respect, there is reason to believe that INDE may since the early 1990s, covered by cooperation be called upon to provide better visibility for the agreements and other legal instruments. This is a efforts of participant institutions, as a way to sensible perspective, since it simplified agreements generate political return for their efforts. On the and facilitated cooperation, but budgeting for data other end of the spectrum, user demand for providers must be analyzed considering also the continued service is frequently a source of services rendered to other organizations and to the stabilization for many technology-related projects. society. There is ample evidence in GIS projects that beyond the point in which information and Information infrastructure is a big challenge, since services become critically important for some access to potentially large volumes of data online groups of users, the chances for achieving requires broadband connections. A plan has been sustainability improve dramatically. issued by the government to pursue rapid improvements in that direction, but so far 1.8 Conclusions The major result in the Brazilian SDI policies is 1 PLC 41/2010 – Lei Geral de Acesso à Informação the recent creation of INDE (Infraestrutura Nacional (General Law on Information Access). Available at de Dados Espaciais), the Brazilian spatial data

National Data Spatial Infrastructure: The Case of Brazil infrastructure. INDE relies on two organizations, SLTI, which is apparently more agile, since it was IBGE (Instituto Brasileiro de Geografia e Estatística), born in the new era, is promoting new standards the Brazilian Institute of Geography and Statistics, such as e-Ping, a set of directives for and CONCAR (Comissão Nacional de Cartografia), interoperability among federal government the Brazilian National Cartographic Committee. organizations, which are fundamental for the success of INDE. E-Ping needs to be more Brazil is a large country with a healthy economy widely known and studied, including its and a number of challenges. One of them is how geographic data section. to distribute resources equally and prioritize the most needing regions. Geographic information In a market where technology is constantly and its distribution through SDIs can play a changing, government agencies and private decisive role in this process. The Brazilian SDI companies struggle to adapt themselves to these scene is characterized by the play between two changes, including staffing of their technical team. tendencies: centralizing and decentralizing. Hiring cartographers and geographers for map Brazilian funding structure forces local and state making activities will not solve their problem. government to depend too much on federal funds. They need experts in spatial analysis and in spatial However, as we reported here, the most successful databases. These experts should know how to take GIS and SDI projects to date come from local and advantage of the increased availability of data as state agencies. Therefore, in order to keep this INDE is being established. The government balance and at the same time extract the best from agencies that are the early adopters of GIS it, this report recommends that World Bank technology are usually the main providers of funding should prioritize local and state initiatives. qualified personnel for the market, but We also recommend that this funding should not government is in turn very slow in the hiring be made through the federal government. process, and it can be very difficult for Nevertheless, funded projects should strictly governmental agencies to compete with the follow the recommendations and requirements set private market‟s salaries. by INDE. This way the funding will support both strengths in the current Brazilian scenario: the It is important to find mechanisms for funding the newly crafted legislation that created INDE and creation of short and long term education the successful independent SDI projects, while at program in GIScience area. They should the same time reinforcing a bottom-up strategy for complement the current offerings that already creating and disseminating INDE. Current offer a good foundation in the associated sciences. strategies by interested agencies that piggyback Besides that, students should also be funded GIS and SDI in funding for larger projects seem directly and indirectly through encouragement of to work well, because they reinforce planning and possible promotions in their professional careers. management with a very small share of So studies to make this happen in government development funds that are provided for agencies need to be developed. A model similar to improving physical infrastructure and major public what is currently used to encourage scientific services. production in Brazilian universities might be used. Any funding program should be encouraged to IBGE has been slowly but steadily pushing itself follow the human resources guidelines suggested into the new information age. All data for the in INDE‟s initial plan and future updates. 2010 census were collected in the field using handheld computers, and today most of the Considering the software scenario, Brazilian GIS census results are available in digital form. IBGE applications evolved from a few users based on also managed distribute the geographic features mainframe computers and expensive software to related to census data. CONCAR is doing its job widespread use of personal computers and of creating and maintaining Brazilian cartographic inexpensive or free and open source software. The standards. Of course it is a challenge for both proliferation of GIS applications although positive institutions, the former 73 years old, the latter 44 in spreading the idea and increasing local years old and recently renovated, to keep up with knowledge also brought lack of standardization the Internet and its constant changing scenario. and duplication of efforts. Many digital mapping

National Data Spatial Infrastructure: The Case of Brazil applications were developed at IBGE, with immediate development needs of Brazil. EMBRAPA, INPE and other federal agencies, Nevertheless, the no charge policy enforced by along with state level initiatives such as Minas INDE and other state SDIs replicates successful Gerais and Bahia, and successful local GIS such as GI dissemination initiatives in the past, and we see Belo Horizonte and others. The development of no reason to change that. We recommend that Brazilian computer science leveraged the funding should be tied to larger projects which are development of GIS expertise and applications. in line with Brazil and the World Bank‟s Some Brazilian universities and institutes help end millennium development goals. This strategy has users in the development of their GIS the advantage of securing resources for applications. This is done usually through information, technology and planning in parallel foundations linked to the academic institutions. with development initiatives, thereby facilitating Large government agencies are able to rely on the assessment of the impact of the broader their internal IT infrastructure but many local project. governments lack this kind of support. Infrastructure is a major issue in Brazil nowadays. Brazil has a strong tradition in software Brazil has reasonable network services in the main development. Although less known than China metropolitan areas but being a large country this and India, the Brazilian software industry develops still leaves many areas that need to be addressed. much of the software used in Brazil, including The high network demand of spatial data transfer GIS applications such as SPRING, TerraView and might also be a problem. Wide public use is i3Geo. The most important results in GIS another challenge because Internet access is software were achieved by INPE, through its expensive for a country with a large part of its open source GIS library TerraLib, an open-source population close to the poverty line. In order to GIS component library used internationally. The address that problem, the Brazilian government Brazilian geographic information community developed a national plan for broadband Internet would greatly benefit from the availability of such connection (PNBL - Plano Nacional de Banda a general, open source GIS library. This would Larga). The plan proposes to give 40 million have a direct impact on the use of GI in Brazilian households low-cost broadband development projects and environmental connections by 2014. This is in line with the goals monitoring and protection. It is necessary to set at the UN‟s World Summit of the Information improve on and fully establish the basic library so Society, which are to have Internet access in all that further uses and applications can follow. communities, schools, museums, public libraries, hospitals and health centers, and all governmental We realize that funding might be a problem for instances. The expansion of broadband Internet the Brazilian SDI. INDE‟s initial budget access in Brazil faces two challenges: establishing accounted only for the first year, and long term effective conditions in regulation for competition funding is still an unanswered question, besides among major suppliers of broadband services, and counting on budgetary resources for the hosting expanding the geographic reach of broadband organizations. The World Bank is already funding coverage. Meeting the second challenge means some Brazilian SDI initiatives. Two important using public resources to expand collective points SDI development projects, IDE-BA and of access, with specific actions towards remote DataGeo/IDEA, described in this report, are areas and low income municipalities; this means funded as part of a larger World Bank endowment that no amount of competition can ensure for transportation infrastructure. It also happens coverage in remote and poor areas, and the plan that, in the past, some metropolitan GIS projects recommends that the government becomes have been financially supported by a share of involved as a part of the solution. funds for large garbage collection and treatment projects. The history of success in Brazilian GIS Considering SDI access needs, the actual projects with external funding is often linked to implementation of the broadband plan is an larger projects more in line with the country‟s obvious recommendation. Two main efforts need development goals. Funding of independent to be funded. First, the expansion of information projects might lead to results that are disconnected and communication technologies infrastructure. In

National Data Spatial Infrastructure: The Case of Brazil parallel, as these services become available, it is intrinsic value of detailed, correct, timely and up- necessary to support projects that give broad to-date information to fulfill their mandates, will Internet access to the general public. This might surely appreciate such efforts. be achieved with support for public schools and libraries. 1.9 Summary of recommendations It is necessary also to invest in initiatives (such as The recommendations embedded in the INDE) that promise to regulate and organize data conclusion of this report are briefly summarized distribution. INPE‟s Open-Data policy should below. also be extended to other organizations, while  supported through funding and governmental Prioritize thematic, state and local SDI policies. Special lines of funding for data sharing development initiatives, while strongly following INDE‟s recommendations should be supporting INDE‟s geoportal and made available. Funding for research that metadata catalog; addresses the main problems in this area, such as  Empower IBGE and CONCAR for semantics, network optimization for large data sets fostering INDE as a source for distribution, user interfaces, and user requirements geographic information generated by should also be available. All these needs could be multiple data producers; combined in a single comprehensive policy, with  Reinforce and value technical personnel two major points: (1) providing funding for data in IBGE and in CONCAR member producers, conditioned to the creation of INDE- institutions by providing opportunities for compatible and INPE-style open access data updating their knowledge, and dissemination, (2) funding SDI-related research establishing rewards based on with an emphasis on applications and realistic performance indicators; usage scenarios.  Improve on the connection between SDI and e-government through e-Ping, by The extrapolation of the SDI development realizing that geographic information practices and institutional conditions discussed in systems can be integrated in the overall e- this report to other countries is an exercise that government strategies; should take into consideration the number of  Support national software development features that make Brazil a unique country. initiatives, and proceed with the open Nevertheless, it is our opinion that the source “public software” policy; development of a national SDI, considering its  Establish alternative funding sources (e.g., “technology, people, policies and standards” piggyback SDI projects in larger definition, presents as the main hurdle the development or physical infrastructure “policies” part. Technology for SDI development projects) while keeping the no charge is widely available, with a prevalence of open- policy established in INDE‟s creation; source (and zero cost) software. The most  Effectively implement broadband important standards are being defined by ISO and expansion plans in a timely fashion; OGC, and adopted internationally. There must, of course, be a source of qualified people to conduct  Incentive the growth of INDE, by the SDI. But the most difficult part is achieving conditioning the funding of data the kind of institutional maturity that allows public production to the subsequent publication organizations to communicate, share experiences, in an SDI, following all established obtain funding, and develop cooperative efforts standards; that generate useful information, even in the  Fund SDI-related research with an absence of enforcement policies or of penalties for emphasis on applications and real-world non-compliance. Public managers, who know the scenarios.

National Data Spatial Infrastructure: The Case of Brazil

2. Societal Context

2.1 Country overview rainforests in the North to temperate coniferous forests in the southern states and savannas in the Brazil is the fifth largest country in the world, the central highlands. The country is situated in the largest in South America, with over 8.5 million middle (and geologically oldest part) of the South square kilometers, which is about 47% of South American tectonic plate. As a result, the country‟s America. As a frame of reference, Brazil is larger mountain ranges are relatively modest in height than the continental U.S. and almost twice the size (the highest point in the territory reaches just of the countries that compose the European under 3,000 m) and the country is virtually free of Union. Its climate ranges from equatorial to the effects of volcanoes and earthquakes. Brazil is subtropical, with most of the country classified as divided into five geographic regions (Figure 1), tropical. There are also semiarid and temperate each of which composed of states with similar areas. The diverse topography leads to regional cultural, social, economical and historical microclimates in some parts of the country. backgrounds. There are 26 states and the Federal Vegetation varies accordingly, from the equatorial District, and over 5,500 municipalities.

Roraima Amapá

Amazonas Pará Maranhão Ceará Rio Grande do Norte Paraíba Piauí Pernambuco Acre Alagoas Tocantins Rondônia Sergipe Mato Bahia Grosso Distrito Federal Goiás Minas Mato Gerais Grosso do Espírito Santo Sul São Paulo Rio de Janeiro

Paraná North Santa Catarina Northeast

Rio Grande Central-West do Sul Southeast South

Figure 1 States and regions of Brazil. (Map source: Wikimedia Commons)

National Data Spatial Infrastructure: The Case of Brazil

2.2 Demographics Brazil is home to more than 193 million people 2.3 Economy (mid-2010 IBGE estimate)2. Population is unequally distributed (2.3 ). The Southeast region The Brazilian gross domestic product (GDP), houses 38% of the population, and is the most according to the World Bank purchase power 2 parity estimate, has reached US$ 1.978 trillion in densely populated (over 77 people/km ), while the th North region is the most sparsely populated 2008, ranking 9 in the world (The World Bank 2010). The recent worldwide economic crisis has (under 4 people/km2). The largest city in the country is São Paulo, with a population of over 11 had some impact over the country‟s economic million people (almost 20 million in the growth; estimates indicate that the GDP shrunk metropolitan area). Other large cities include Rio by 0.2% in 2009, but the fourth trimester has de Janeiro, Salvador, Brasília (the country‟s shown a 2.0% growth. Per-capita income reached capital), Fortaleza and Belo Horizonte, all of about US$7,300 in 2008 (The World Bank 2009). The country‟s Human Development Index (HDI) which housing more than 2.5 million people, not th including their metropolitan regions. More than reached 0.813 in 2007 (UNDP 2010), ranking 75 84% of the people live in cities. Working-age worldwide, among countries with high human people (15 to 65 years of age) comprise 66% of development. the population. Current life expectancy at birth is Income distribution is quite uneven, although about 72.6 years. Birth rates are declining, inequality has been slowly decreasing throughout reaching 16.38 per thousand people, while the the last decade. In 2008, the Gini index was at overall fertility rate was 1.86 in 2008. Population 0.521 (IBGE 2010), down from 0.566 in 2005 and annual growth rate is also declining, and was 0.594 in 2001 (Barros, Foguel et al. 2006). In 2008, 1.045% in 2008. Infant mortality rate was 23.3 per the 10% richer concentrated 42.7% of the income, thousand births, and general mortality rate was at while the 10% poorer had only about 1.2% (IBGE 6.27 per thousand people in 2008 (IBGE 2008; 2010). IBGE 2010). Two ghosts from the Brazilian economic past, inflation and external debt, are currently under control. In December 2005 Brazil repaid its debt to the IMF (US$ 15.5 billion) two years ahead of schedule, saving US$ 900 million in interest payments. It has also repaid its Paris Club obligations to the UK, and retrieved all of its Brady Bonds, again ahead of schedule. Brazil has international reserves in excess of US$ 200 billion. Inflation is controlled by an inflation targeting policy, being at 4.31% in 2009 (IBGE 2010). Tax load, on the other hand, has increased from 31.9% of the GDP in 2003 to 34.7% in 2007 (IBGE

Persons per km2 2010). Under 1 1 to 10 10 t0 25 Brazil‟s economy is structured around services 25 to 100 Over 100 (65.3% of the GDP), with significant industry (28.0%) and agriculture (6.7%) sectors. As to Figure 2 Brazil demographic density map (Source: IBGE) services, the banking sector has survived reasonably well the recent international crisis, with a 14% increase in managed assets between 2008 and 2009. It is a sector in which much technology is developed and used: 35.1% of all clients use 2 http://www.ibge.gov.br/home/popup_popclock.htm shows a population “clock”, an up-to-the-minute Brazilian population internet banking solutions, more than half of the estimate. transactions are either online or through ATMs.

National Data Spatial Infrastructure: The Case of Brazil

Direct cashier operations at a bank branch The Brazilian energy matrix stands out for the account for 9% only of the total transactions large share of renewable sources. In 2009, 47.2% (FEBRABAN 2010). Although the banking of the supply came from hydropower and sector is very active and is able to supply the biofuels, while non-renewable sources accounted economy with a wide range of services, interest for the remaining 52.8%, most of it (46.7%) from rates in Brazil are still among the highest in the petroleum and natural gas (MME 2010). In 2009, world. 84% of the light vehicles manufactured in the country had “flex fuel” engines, which operate on The country is a traditional source of any mixture of gasoline and ethanol (ANFAVEA commodities, and ranks among the top producers 2010). and exporters of several such products. It is the largest world producer of sugar cane, coffee, 2.4 Society beans and oranges, the second largest of soybeans, tobacco, and beef. Large-volume agricultural Between 1995 and 2008, i.e., since the start of the exports include soya (beans, cake and oil), chicken economic stability period, 12.8 million Brazilians meat, beef, coffee, sugar, tobacco, corn, orange got out of absolute poverty conditions (per capita juice, pork, cotton, and others. On the other hand, monthly income of under half the national major food imports include wheat, rice and malt minimum wage), thus reducing this indicator from (FAO 2010). As to mineral commodities, Brazil 43.4% to 28.8% of the population in that period. has a very diversified production. The country is Likewise, extreme poverty (per capita monthly the second largest producer of iron ore, income of under a quarter of the minimum wage) manganese, aluminum, and is self-sufficient in was overcome by 13.1 million people, reducing the petroleum. Recently discovered deep sea reserves national indicator from 20.9% in 1995 to 10.5% in may transform the country into a major oil 2008 (IPEA 2010). Most of these improvements exporter. The mining sector is responsible for took place in the last five years (2003-2008), in about 5.8% of the GDP, not including oil and gas which macroeconomic conditions were more (IBRAM 2010). favorable.

Brazil also has a diversified industrial sector, and Brazil has yet to overcome many development exports of manufactured goods are steadily hurdles. The illiteracy rate, for instance, is 10% increasing. Brazil is the largest manufacturer of (IBGE 2010), and functional illiteracy reaches regional jets, and has a significant automotive and 21.6%. Average schooling time among people autoparts industry (fifth largest producer since over 10 years old is of 6.9 years (IBGE 2010). In 2008, manufacturing over 3.1 million vehicles a 2008, 30.1% of the population has had 11 years or year, and exporting US$11 billion annually). more of formal education, 17.0% have between 8 Production is concentrated in the Southeast and 10 years, and the remaining 52.7% have 7 region, with 45.5% coming from São Paulo and years or less. Total government expenditure on 24.0% from Minas Gerais. Small-engine cars education is 4.1% of the GDP (IBGE 2010). comprise 52.7% of newly licensed vehicles Health care in Brazil is organized around a unified (ANFAVEA 2010). As to jets, EMBRAER health system (Sistema Único de Saúde - Unified (Empresa Brasileira de Aeronáutica S.A. – Health System - SUS), which ranges from Brazilian Aeronautics Company), one of the everyday services up to high-cost and high- largest aircraft manufacturers in the world, has complexity procedures, such as organ transplants. recently announced that it has orders for the The health system is managed primarily by delivery of US$15.2 billion worth of aircraft, and municipal governments, with financial support forecasted earnings of US$6 billion in 2010 and technical cooperation from state and federal (EMBRAER 2010). Other important industrial governments. In spite of its universality and activities include iron and steel, food products, coverage, the public health system is seen as textile and footwear, electronics and appliances, insufficient and of low-quality. As a result, about machinery and equipment, cement, consumer 43.2 million Brazilians (22.6% of the population) durables and petrochemicals. pay for some kind of private health plan or insurance, and another 13.3 million pay for dental

National Data Spatial Infrastructure: The Case of Brazil plans (ANS 2010). The public health care system 2.6 Government and political system maintains major programs dedicated to Brazil is a Federal Republic, consisting of 26 states epidemiology, vaccination, health supplies and and the Federal District. The President is both drugs, health education and formation of chief of State and leader of the government. professionals, and emergency medicine. Health Presidential elections occur every four years with care takes up 4.8% of the GDP in governmental one reelection is allowed. Dilma Rousseff was expenditure (IBGE 2010). elected in November 2010 becoming the first woman president in Brazil. The same reelection 2.5 Environment rules apply to state governors. There are 5,564 More than half of Brazil‟s territory is covered in municipalities, ruled by Mayors, elected every four forests; the country has the world‟s largest years as well. The last municipal elections took rainforest, the Amazon. Intensive enforcement of place in 2008. environmental laws and policies has managed to reduce the rhythm of deforestation of the The legislative branch has a Federal Senate (81 Amazon, from over 27,700 km2 in 2004 to less seats, three per State) and a House of than 7,500 km2 in 2009 (INPE 2010). The country Representatives (513 members). In States, the has declared a total of 18.7% of its territory as legislature consists of a single House, with a protected areas (IBGE 2010). Furthermore, 12.4% number of State Representatives that varies of the territory is delimited as Indian reservations according to on the State‟s population and specific (FUNAI 2010). legislation. Likewise, municipalities also have a Legislative House, in which the number of As to greenhouse gas emissions, Brazil has councilmen varies according to the population. achieved notoriety not because of cars, power plants or industry emissions, but because of forest General elections are held regularly every two burnouts. Of course, reducing the pace of years since the 1988 Constitution. There are deforestation will also have the side effect of numerous political parties, which freely form reducing the country‟s emissions, and as a result coalitions for elections at each race. As a result, Brazil is active in initiatives such as REDD governments often have to make commitments (Reduced Emissions from Deforestation and with a range of political allies in order to obtain forest Degradation). In the Copenhagen 2009 parliamentary majorities. climate change conference, Brazil committed to a reduction of 36.1% to 38.9% of its greenhouse gas 2.7 Science and technology emissions until 2020. That commitment implies in Brazilian science and technology have reached a an 80% reduction of deforestation in the Amazon significant role internationally in the last decades. and a further 40% reduction of the deforestation Stabilization of funding, and a steady flow of of the cerrado, the savannah-type vegetation found investment in the sector have led to an increasing in central Brazil. performance by Brazilian scientists and institutions. Over the last twenty years, Brazilian Brazil holds 12% of the world‟s surface freshwater contribution to worldwide science has been supplies (ANA 2007), and has several important increasing steadily, from 3,176 papers in 1989 to basins besides the Amazon. However, the over 19,000 in 2007. The relative impact (in terms Northeast region constantly suffers from of citations per paper) of Brazilian science droughts, while flooding and intense rainfall often currently supersedes the three other BRIC nations cause problems in South and Southeast states. (Russia, India, China), although the impact Furthermore, there is intensive pressure on water remains under the world average. The fields in resources in some regions, in which there are which Brazilian impact rates have increased more demands from irrigation, human consumption, rapidly are agricultural sciences, microbiology, and energy generation. pharmacology, and environmental science; highest relative impact comes from engineering and mathematics (King 2009). It should be noted that less than a third of Brazilian scientists work in

National Data Spatial Infrastructure: The Case of Brazil industry, and most research and development As in the case of most social indicators, activities are carried out by universities. R&D distribution of these accesses is uneven. While in investments are currently at 1% of the GDP the Northeast and North regions broadband (IBGE 2010). reaches respectively 4% and 13% of the households, in the South and Southeast these 2.8 Information technology figures improve significantly to 21% and 24%. There is a plan to extend broadband connections According to the most recent household survey to all urban public schools in the country by 2010, (IBGE 2010), 83.3% of homes have access to reaching 56,000 schools and 85% of the students water supply and 73.6% have adequate sewage. (MC 2010). There are stoves in 98.1% of homes and refrigerators in 90.8%. Furthermore, 94.5% of the The federal government has recently issued a plan homes have a television set, and 26.6% have a to disseminate broadband Internet access microcomputer. In 2008, there were 21.43 throughout the country until 2014 (MC 2010). The telephone ground lines and 78.47 mobile phones goals include reaching 30 million landline per group of 100 citizens. There were also 35.51 broadband connections for homes and businesses, Internet accesses per group of 100 citizens. and to reach 100% of government installations with broadband connections, including 100,000 In 2008, there were approximately 9.6 million new federal telecenters. There is also the goal to land-based broadband Internet connections in achieve 60 million mobile broadband connections. Brazil. Annual growth rates for this kind of Currently, over 64 million Brazilians connect connection averaged 49% annually between 2002 regularly to the Internet, and Brazilian users rank and 2008. However, the annual rate of growth has amongst the ones with highest online time (over decelerated since 2004, and in 2008 broadband 30 hours per month) (MC 2010). connections increased only 29% (MC 2010).

National Data Spatial Infrastructure: The Case of Brazil

3. Historical Perspective

3.1 Introduction Company of the City of Belo Horizonte), is a information technology company owned by a local The adoption of GIS (Geographic Information government which has one of the most successful Systems) in Brazil begins in middle 80s. The urban GIS projects in Brazil (Borges and Sahay transition from pure GIS projects to a broader 2000; Davis Jr. and Fonseca 2006). And finally, view that led to SDI (Spatial Data Infrastructures) FatorGIS, and later, its spin-off MundoGeo, which is hard to pinpoint. Because the number of are, today, the most important media companies government institutions involved in GIS since the with a focus on GIS in Brazil. Each one beginning, some of the SDI aspects were also represents an important facet in the development present. of the Brazilian GIS scenario. INPE brings in a strong research and technology agenda and There were a set of leading institutions which have resources. PRODABEL is application-driven, a played an important role in pioneering GIS good place to apply the research and technology technologies in Brazil. These early adopters developed at INPE. FatorGIS and MundoGeo act combined R&D in spatial information with the as places where these two worlds can meet and production and dissemination of spatial data. They share their GIS experiences with themselves and formed a collaborative network that was with other users. instrumental to ensure that such a large country could benefit from spatial information During the 80s, aiming at the protection of the technologies. The network was successful because local information technology industry, the it combined expertise in different areas of spatial Brazilian Government adopted a “market reserve” information technology. The Brazilian GIS early policy. For eight years, there was strong economic adopters viewed knowledge as a public consumption incentive provided by the government to produce good (Dasgupta and David 1994) and openly local information technology (IT) hardware goods. spread their experience and their results. These The „market reserve‟ law provided a powerful adopters have helped to avoid the “lock-in” incentive for local development of GIS and effects associated with the introduction of Remote Sensing Image Processing technology. By information technologies in transitional then, the average price for a single-seat system was economies (Arthur 1994; Mowery 1996). In Brazil, approximately US$ 100,000, including hardware, associating public diffusion of innovation with software and training costs. As a result, INPE locally developed no-cost and open source established its Image Processing Division in 1984 software enabled many institutions to avoid being with the following aims: (a) local development and locked-in to a particular vendor‟s solution. For dissemination of image processing and GIS instance, an indicator of the reduction on the systems in Brazil; (b) establishment of a research “lock-in” effect is the fact that companies offering program in Image Processing and GIS, and (c) services based on open source software form 15% pursuit of cooperative programs with universities, of the service provider market (Magalhaes and government organizations and private companies. Granemman 2005). In 1986, INPE brought out Brazil‟s first GIS based on an Intel platform, which was later used Among the many participants in the development extensively by 150 universities and research labs of the Brazilian SDI, there were three key ones, up to 1996. originating from three different sectors of the economy with varying missions. The first one, In 1992, given recent advances in hardware and INPE – Instituto Nacional de Pesquisas Espaciais software and the changes in information - Brazilian National Institute for Space Research, technology policy in Brazil, INPE started the is a major research institute funded by the federal development of a free GIS software, SPRING, government. The second, PRODABEL (Empresa whose first Web version was made available in late de Informática e Informação do Município de Belo 1996. SPRING provides a comprehensive set of Horizonte S/A – Information and Informatics 14

National Data Spatial Infrastructure: The Case of Brazil functions for processing of spatial information, portal, a magazine, and its own user-conference including tools for Satellite Image Processing, series, GeoBrasil, which has been held annually Digital Terrain Modeling, Spatial Analysis, since 2000. Geostatistics, Spatial Statistics, Spatial Databases and Map Management. Currently, in a partnership 3.2 Relationship among early adopters with the Catholic University in Rio de Janeiro, in the Brazilian GIS scenario INPE is developing TerraLib (Câmara, Souza et al. 2000), an open-source GIS component library. We categorize the “early adoption” period of GIS TerraLib enables quick development of custom- in Brazil to span from 1986, when INPE released built applications using spatial databases (see its first GIS software, to 1994 when FatorGIS www. terralib.org for further details). promoted the first major user conference. Besides INPE, PRODABEL and FatorGIS, also The second player is PRODABEL, Belo Unicamp, Embrapa, and TecGraf played a Horizonte‟s IT company. Belo Horizonte is the significant role in fostering the adoption of spatial fourth largest Brazilian city, with a population of information technology. more than 2.2 million people, spread over 335 square kilometers, and is the center of a The early adopters worked together in many metropolitan area that houses over 3.5 million projects and thus created significant links, which people. Belo Horizonte‟s GIS project, which were fundamental for the successful started in 1989, was managed by PRODABEL. implementation of an SDI in Brazil. For instance, An interesting fact was that PRODABEL also from 1994 to 1997, Unicamp led a multi-million hosted the city‟s cadastre cartographical services. dollar cooperative project in Geoinformatics with The main efforts were towards creating the INPE, CPqD, Embrapa, and PUC-Rio (Câmara, geographic database, the development of the Freitas et al. 1994; Câmara, Casanova et al. 1996). necessary human resources, and the search for Embrapa has developed joint work with INPE partnerships within the city. In the long run, the focusing on spatial analysis and modeling applied project became a reference for urban GIS in to agriculture (Assad and Sano 1998) and with Brazil. Its team grew out to be participating in the Unicamp focusing on interoperability and local government activities and today play a major semantics (Fileto, Medeiros et al. 2003). role in the Brazilian scientific community. The One of strategies adopted by the early adopters project architecture started with a centralized was to support initiatives for interaction with effort and later moved to a decentralized service other groups interested in GIS in Brazil. The structure. The GIS project for the city of Belo adopters had an active role in pursing partnerships Horizonte has received national and international with groups in various disciplines that had an recognition for providing applications that deal interest in spatial technologies. These included with important social needs, including education, research groups in different areas: (a) spatial health, transportation, and environmental control. epidemiology in partnership with the National The results also include over 200 publications, School for Public Health; (b) social exclusion in including theses, academic papers and articles in partnership with the Catholic University of São trade magazines, written by PRODABEL Paulo; (c) crime analysis in partnership with the researchers (Davis Jr. 1993; Fonseca 1993; Borges Federal University of Minas Gerais. and Sahay 2000). A second important strategy of INPE was not to The third player is FatorGIS, a media company base the technological implementation on cloning that started out in 1993 publishing a small existing software and looking for new solutions magazine on GIS. From the magazine, FatorGIS instead. For this reason, the design of the started a very successful user-conference series SPRING system (done in 1991) was based on called GIS-Brasil, holding annual meetings till integrating remote sensing and GIS with an 2004. The company went through some changes object-oriented data model (Câmara, Souza et al. in 1999 which led to an online publication 1996). At the time, the concepts of object-oriented replacing the original paper magazine. It generated modeling were new in GIS, and the part of the also a spin-off called MundoGeo which has a success of SPRING can be traced to its use of 15

National Data Spatial Infrastructure: The Case of Brazil what was then an innovative technology and also The service providers based on commercial software have to the fact that remote sensing imagery is an based their strategy on the leverage provided by essential component of most geospatial existing proprietary solutions. Usually, they applications in large countries such as Brazil. associate software licensing to services such as customization and database modeling. This model 3.3 The role of private companies has proven successful. However, it is subject to the same transitions that are happening in the Assessment of the role played by the private international GIS arena, where a new generation companies in diffusion of innovations is a major of spatial databases is already having a strong challenge in transitional economies. The case of impact on the market. These companies are GIS/SDI Brazil is no different. The available struggling to adapt themselves to these changes, surveys are still incomplete and give only rough including staffing of their technical team, where indicators of the extent of this participation. There instead of mostly hiring cartographers and are more than 200 companies working with GIS in geographers for map making activities, they Brazil. The total market is estimated in around require experts in spatial databases. The “early US$ 150 million, and employee numbers are over adopters” are the main providers of qualified 4,000, more than 75% of them with a technical personnel for these companies. background. Agriculture and facilities management are the largest private application markets; urban cadastre makes up 45% of the 3.4 Final remarks public customers (Magalhaes and Granemman Brazil has been largely successful in setting up 2005). Companies offering services based on open qualified institutions that produce and distribute source software form 15% of the service provider spatial data. The collaborative network of early market. The linkages between the various players adopters was instrumental in ensuring that such a and the private companies can be grouped in three large and diverse country could benefit from the main categories: (a) data providers; (b) service widespread adoption of spatial information providers based on commercial software; and, (c) technologies. This collaborative network was service providers based on open source software. successful because its members were able to (1) combine specialized expertise in different The data providers have settled their business segments of spatial information technologies and around the failures of the Brazilian mapping (2) view knowledge as a public consumption good. agencies to provide basic digital cartographic information. Mostly, their business consisted of All the groups that comprised the network of digitizing existing topographic maps, as well as innovators in Brazil had a primary background in high-resolution imagery distribution. The business information technology, rather than mapmaking. of data provision will soon change significantly. GIS and SDI are disruptive technologies which As a more comprehensive SDI is established, and need a new culture to be effectively used. The public maps are made available in digital formats, Brazilian experience shows that it is questionable the data providers will have to change their that institutions with deep-rooted cultures such as business models. Either they have to adopt new most national mapping agencies can be fully technology such as digital photogrammetry for successful in setting up SDI without undergoing creating new maps, or they will have to become major internal changes. service providers of location based services and online maps.

National Data Spatial Infrastructure: The Case of Brazil

4. Current Situation

This section presents the current situation in portal will host the central data catalog, which is Brazil as to the maturity of the country, its called Diretório Brasileiro de Dados Geoespaciais government, institutions and people regarding (DBDG). Data should be free to any registered geographic applications, geospatial information user. technology, geoinformatics and other topics related to spatial data infrastructures. INDE made sharing geospatial data mandatory for all departments and agencies of the Federal 4.1 Policy issues and legislation government. INDE establishes a safeguard for classified information, as determined by the The current situation of SDI in Brazil is defined Brazilian government, which then does not need by a recent executive order (Decreto No. 6.666, de to be shared. INDE initially has control only on 27 de novembro de 2008) that defined and created Federal departments and agencies, but state and INDE (Infraestrutura Nacional de Dados Espaciais), local government initiatives are taking place in the Brazilian spatial data infrastructure. It parallel, some predating INDE, others strongly corresponds to the American National Spatial based on it. Data Infrastructure (NSDI), to the European INSPIRE, and, more recently, to the United INDE‟s action plan calls for some specific actions Nations Spatial Data Infrastructure (UNSDI). by each member organization. It sets some expectations for Federal government departments As required by the executive order, an action plan and agencies, for CONCAR and for IBGE. has been created for the development and dissemination of INDE (CONCAR 2010). The The Federal government departments and plan follows the traditional definition of a SDI, agencies are expected: along the lines set forth by the American Federal Geographic Data Committee, which says that . To follow the standards established by SDIs consist of not only loads of available data CONCAR and INDE in any activity that and technological tools, but also involve people, involves creation or acquisition of policies, and standards. More specifically, the plan geospatial data; defines INDE‟s objectives as creating metadata . To have consultations with CONCAR catalogs, integrating and sharing geospatial data before starting new projects to create or created and maintained by different Brazilian acquire geospatial data. government institutions so that the data is easily found, browsed, and used through the Internet. In IBGE is expected: the spirit of a traditional SDI, it states clearly that the data and metadata are to be created and . To build, make available, and operate SIG maintained by their original producers. Brasil (INDE‟s geoportal) following INDE‟s recommendations; INDE is being implemented under the . To manage DBDG (INDE‟s central data supervision of CONCAR (Comissão Nacional de catalog) through the management, Cartografia), the Brazilian National Committee of maintenance, and advancement of SIG Cartography, which is under the Ministry of Brasil; Planning, Budget and Management (MPOG, . To make available the processes for Ministério do Planejamento, Orçamento e Gestão). IBGE electronic access to data, metadata, and (Instituto Brasileiro de Geografia e Estatística - Brazilian services following CONCAR‟s guidelines Institute of Geography and Statistics) is the executive for DBDG; institution that technically and administratively . To implement any restrictions to data supports CONCAR. IBGE is responsible for access as specified by the data producers; creating, implementing and maintaining the SIG . To keep the confidentiality of census data Brasil Web geoportal, which should provide access as required by Law; to all of INDE‟s geospatial data and services. The

National Data Spatial Infrastructure: The Case of Brazil

. To bid for resources to implement and  Finding, jointly with IBGE, maintain INDE; sources of funding for . To report to CONCAR annually about implementing INDE, the above listed activities. development of standards, training, and the establishment of CONCAR is expected: partnerships with Federal departments and agencies. . To create evaluation policies and regulations for new INDE-related The implementation of INDE is planned to span projects that involve the acquisition of 10 years, starting in 2009. It will take place in three geospatial data; cycles. The first one started in August 2009 will . To make sure that INDE‟s standards finish in December 2010. It is expected that at the match with CONCAR‟s, which follow end of this cycle a basic infrastructure of previous legislation (Decreto-Lei no 243, de hardware, software and telecommunications will 28 de fevereiro de 1967 and Decreto no 89.817, be available behind the SIG Brasil geoportal. de 20 de junho de 1984) Functionality such as searching, browsing, and . To coordinate the implementation of access to geospatial data and metadata from INDE‟s central data catalog (DBDG); Federal departments and agencies should be . To create guidelines for the creation and available by then. The second cycle, from 2011 to use of the central data catalog (DBDG); 2014, will be focusing on assessment, consequent . To make sure that central data catalog planning and implementation of changes. The (DBDG) follows the interoperability third cycle will start in 2015 and end in 2020 with standards (e-Ping) set by the Ministry of a focus on expanding the user pool, better Planning, Budget and Management; communication, and alignment with the Federal . To promote the use of Open Source Government objectives. Software solutions for INDE; . To follow up on IBGE‟s INDE-related 4.2 Organizational issues tasks; The executive branch of the Brazilian federal . To submit INDE‟s implementation plan government is organized in ministries, which to the Ministry of Planning, Budget and create and implement regulations, development Management, addressing the following programs and policies directed towards the sectors issues: each of them represents. In strategic areas, there  Creating deadlines for (1) the are a number of secretariats and councils (see implementation of DBDG and Appendix for a complete list). Ministers and SIG Brasil; (2) the certification of secretaries have the same status in the first level of data and metadata standards; (3) the government hierarchy, along with the Federal departments and agencies country‟s attorney general and the president of the to make available the metadata Brazilian Central Bank. Councils are joint on data they will contribute to administration organisms which propose INDE; and (4) the availability of directives or decide on public policies. the services and metadata Furthermore, there are several regulatory agencies, relevant to the data that will be in charge of inspecting and controlling private available through the central data sector companies that provide public service. catalog (DBDG ); First-level government institutions can include, in  Creating rules for publishing their structure, secretaries, institutes, foundations, metadata on INDE and for new companies, committees and other types of projects related to the acquisition organizations. of geospatial data by Federal departments and agencies;

National Data Spatial Infrastructure: The Case of Brazil

Ministry of Planning, Budget and Associated Commissions Linked Institutions Commission of external funding Management Brazilian Institute of Geography National commission of cartography and Statistics National commission of National School of Public classification Administration National commission of people and development Financial Executive Affairs Secretariat

Chief of Staff Department of Department of Subsecretariat Department of inventory HR of planning, state-owned management of management of budget and companies defunct defunct Legal Affairs admnistration companies companies

Secretariat of Secretariat of Secretariat of Secretariat of Secretariat of planning and Secretariat of Secretariat of logistics and international human government strategic federal budget management information affairs resources inventory initiatives technology

Figure 3 - Organizational structure of the Brazilian Ministry of Planning, Budget and Management

Policies and coordinated action on geographic activities regarding to communications, information and SDI-related themes for the technological infrastructure, e-government, and federal government, with implications at the state information systems integration. IBGE and and local levels, originate mostly in the Ministry of CONCAR actions and decisions regarding INDE, Planning, Budget and Management (Ministério do along with interoperability directives issued by Planejamento, Orçamento e Gestão, MPOG). The SLTI under e-Ping, will be mentioned intensively structure of this ministry (Figure 3) includes three throughout this section. organizations that are central to a federal GI/SDI agenda. The first of these is IBGE, the Brazilian CONCAR congregates representatives from 17 of Institute of Geography and Statistics, which is the 24 ministries, two secretariats of the both a source of census data, socioeconomic President‟s office, the cartographic services of the surveys and statistical data, and nation-wide Brazilian military, IBGE and a representative from mapping. IBGE coordinates CONCAR, the the class association of the aerial surveying Brazilian cartographic committee, which issues companies. Among these representations, we most cartographic standards and regulations. Both notice the absence of the Ministry of Social IBGE and CONCAR are the responsible for Development and Fight against Hunger (MDS), INDE (Infraestrutura Nacional de Dados Espaciais, the one of the main organizations behind the Brazilian Brazilian SDI). Finally, one of the secretariats effort towards achieving the millennium under the ministry (SLTI - Secretaria de Logística e development goals. CONCAR also organizes Tecnologia da Informação- Secretariat of Logistics and regional forums, for each of the five geographic Information Technology) has a mandate to regions of the country. Furthermore, there are five organize logistics and TI initiatives for the federal technical sub-commissions, covering national government. SLTI is the responsible for e-Ping, a defense, spatial data, dissemination of set of directives for interoperability among federal information, legislation and standards, and government organizations, among other important 19

National Data Spatial Infrastructure: The Case of Brazil planning. CONCAR members are listed in the and journals which describe GI gathering and Appendix. treatment, GIS implementation and usage, and even SDI creation. Furthermore, all of the major 4.3 GIS applications GIS software vendors have clients in some governmental branch, at the federal, state or local Many activities of the Brazilian government levels, including utility companies, government- require geographic information, and there is a owned companies and other organizations. There large number of applications that support those are also many users of SPRING, activities. To the best of our knowledge, there is TerraLib/TerraView and i3Geo; the latter is a no organized catalog of geographic applications in compilation and customization of Web GIS tools the government, but the widespread usage of GI based on MapServer, while the other two are technology can be assessed by browsing software tools conceived, developed and freely government-related papers in national conferences distributed by INPE. GI development and usage in the Brazilian government, and with no intention of being an exhaustive list. Table 1 lists a few of these applications, more in the interest of providing a notion of the scope of

Table 1 – Some geographic applications in Brazil

Organization Thematic scope

EMBRAPA SOMCode – Self-Organizing Map Code project CASAA – Connectionist approach for spatial analysis of areal EMBRAPA data, a tool for exploratory data analysis FUNCATE ZEE – Brazilian ecological and economical zoning program GMI – Integrated urban geographic information systems, a FUNCATE generic GIS for municipal applications Spatial database for environmental and socio-economic GeoBahia information in the state of Bahia IDEMA Environmental data for the state of Rio Grande do Norte I3Geo-based interactive map showing themes related to land INCRA parceling and the location of colonization projects INPE TerraView, a geographic data viewing and analysis tool INPE TerraNetwork, a problem-solving application for urban networks TerraCrime, a geographic system for criminality analysis and INPE and UFMG strategic planning INPE and UFMG TerraStat, a library for spatial statistics that is integrated to TerraLib INPE and UFOP TerraME, a system for dynamic modeling and simulation INPE, FIOCRUZ, UFMG, SAUDAVEL – an epidemiologic surveillance system UFPR, PRODABEL

MMA i3Geo-based interactive Web map showing several environmental

National Data Spatial Infrastructure: The Case of Brazil

themes SISLA (Sistema interativo de suporte ao licenciamento ambiental), MMA a Web interactive system that provides support for environmental licensing MS Atlas of health indicators in Brazil Interactive maps on environmental health factors monitoring and MS and FIOCRUZ worker health programs

OTCA – Organização do I3Geo-based application built around themes of interest for Tratado de Cooperação international cooperation between Brazil and neighboring Amazônica countries in the Amazon region. Petrobras and PUC-Rio InfoPAE – an emergency plan deployment system Developed by Universidade Federal de Minas Gerais, uses i3Geo Projeto Manuelzão to show themes of environmental interest for the preservation of Rio das Velhas basin in Minas Gerais. Statistical and cartographic data for the state of Bahia, includes several GIS datasets ready for download along with an interactive SEI system built around environmental and socioeconomic statistical data UFMG Crime mapping aRT – an statistical package that integrates the R library and UFPR TerraLib GIS classes USP SISGIS – a geographic system that presents seismological data

4.4 Funding issues since computer equipment and Internet connections have diminishing costs in time. INDE‟s action plan (CONCAR 2010) includes an Following INDE‟s example, no other Brazilian estimate of the financial resources that are SDI development project has currently publicized necessary to accomplish the initial activities for the any intention to charge for information access. deployment of the Brazilian SDI. The estimate only covers the first year of operation with a Notice, also, that charging for data has been budget of about R$10 million (about US$6 relatively rare in Brazil. Some data producers million). Such resources are expected to come established a cost-recovery policy based on from the Treasury, since INDE‟s creation expenses generated by the fulfillment of the executive order determined that spatial data demand, i.e., costs related to extracting, copying or included in the SDI should be freely available to plotting data, such as media and supplies, along the registered users. This precludes any initiative with the man-hours required for consumer to generate revenue from data access, and sets an support. Most organizations used to see data example to state and local SDIs as to the source of production as part of their institutional funding for their initiatives. The rationale behind responsibilities, and therefore governmental this decision seems to be that most of the data agencies, citizens and businesses were not production costs are already included in each data supposed to pay for information (Davis Jr. 1995). producer‟s budget, and therefore only This rationale seems to have prevailed, and many dissemination costs are new. In turn, organizations that used to charge for geographic dissemination costs are mostly becoming lower, information, IBGE included, now provide free

National Data Spatial Infrastructure: The Case of Brazil access over the Internet. Possibly as a result, no projects (IDE-BA and DataGeo/IDEA, see the meaningful debate exists nowadays in Brazil as to Best Practice Examples section) are funded by a small data commercialization or even costs recovery. part of a much larger World Bank funding for roads development and repavement. In the past, One of the most important initiatives of data metropolitan GIS projects have been funded by a dissemination in Brazil has been implemented by small share of garbage collection and treatment INPE, the Brazilian National Institute for Space projects, also funded by the World Bank. Research, in charge of remote sensing and deforestation monitoring (see the Best Practice Although there are some cooperation agreements Examples section). Although in the 70s INPE did for GIS development which allow private not publish either the data or the analytical companies (especially those involved in public methods, today the situation is quite different: services, such as utilities companies) to participate INPE enforces a paradigm-changing open data and contribute, there is to the best of our and open access policy. Now Brazil has its own knowledge no initiative to involve the private satellite program and, according to Science sector deeper in GIS or SDI projects. Brazilian Magazine (Kintisch 2007), INPE generates “yearly legislation allows for public-private partnerships, totals of deforested land that scientists regard as but these usually apply to large engineering works reliable” and “provides automated weekly clear- or to physical infrastructure, such as roads or cutting alerts that other tropical nations would subways. love to emulate”. Currently, the Amazonia rainforest in South America is being covered 4.5 Human resources regularly (by LANDSAT-5 and CBERS-2B In most definitions of spatial data infrastructures, satellites) and, through INPE, this data is available “people” are featured as one of the most freely on the Web, at no cost. INPE‟s open data important components. This reference is not to policy enables experts from all over the world to the common folk, but mostly to technical analyze satellite images over the internet. This personnel, who are able to play the many roles means that for experts from Central Africa, using required for a successful SDI. These roles range Brazil‟s open data policy for example, it is more from the geography, geodesy or cartography attractive to look for relevant satellite images expert that is in charge of data gathering and through Brazilian-provided data of satellites such preparation to the computer science specialist that as CBERS (the Chinese-Brazilian Earth Resources manages the computational infrastructure and Satellites) than to use commercially available data. ensures the performance of Web services over the Commenting on Brazil‟s Open-Data policy, an Internet. Experts and specialists in other areas can article in Nature said that “Brazil has set an contribute in a variety of thematic data that can important precedent by making its Earth- compose the SDI, and can also play the role of observation data available, and the rest of the users, interested in getting access to basic data world should follow suit”3. Nature then asks how from the SDI to develop their own projects. Of rain forest nations all over the world be course, all these roles exist among people encouraged to do good forest stewardship. INPE connected to governmental organizations, has pledged to make its expertise available to all academia, and the society at large, including countries and institutions interested in preserving private companies, NGOs and individual citizens. the world‟s rain forests. This is achieved based mostly on INPE‟s budget. As one of the most important emergent economies in the world, Brazil has a numerous Although most GIS and SDI projects start up array of undergraduate programs that provide with budgetary funding, in some instances initial college education in all of the above mentioned funding has been obtained from external sources. fields. Overall, in 2008 the country had over 2,200 For instance, two ongoing SDI development higher education institutions, which host over 24,000 programs4. There were 162 Earth Sciences 3 Editorial, in Nature 452(7184), 13 March 2008. Available at http://www.nature.com/nature/journal/v452/n7184/full/452127b. 4 Source: http://www.inep.gov.br/superior/censosuperior/sinopse/ html, last access Feb 11 2011. default.asp

National Data Spatial Infrastructure: The Case of Brazil programs (geography, geology, oceanography, education, but rather on the need to present new hydrology, and so on), 1,673 Computer concepts to these professionals. The idea is that Science/Information Processing programs, and operating with spatial information through an SDI 2,247 engineering programs in all denominations. constitutes a new skill, and so both managers and Given the fact that geographic information has professionals should be familiar with the data- only recently become relatively common, we centric approach and all the related concepts, such assume that the presence of geographic as metadata and Web services. As a result, chapter information management topics in the curricula of 6 in INDE‟s Action Plan characterizes three these programs is relatively rare. groups of professionals that should become the target for education strategies: (1) institutional Nevertheless, there is a growing array of graduate users, (2) experts in management, production, and programs on GIS and related fields. Most of these use of data, and (3) technology professionals. The are lato sensu graduate programs, i.e., programs for first group includes managers and people graduate students that do not provide a Master‟s responsible for standardization or communication or a Doctoral degree – in Brazil, the title is among organizations. The second group includes “Specialist”. For instance, the specialization most data producers and consumers, including program on geoprocessing, offered by the those responsible for cataloging and creating Cartography department of Universidade Federal metadata. The third group includes mostly IT de Minas Gerais regularly since 1997, certified professionals, in charge of creating and operating over 300 students so far. databases, establishing Web services, and managing operational aspects such as security. A There are also several stricto sensu Master‟s and broad scope of education programs has been Doctoral programs that conduct research in GIS- proposed in the Action Plan in an attempt to related themes. An academic symposium on characterize the array of required skills that have geoinformatics is held annually since 1999, and to be disseminated in order to promote adequate gathers about 150 researchers and students every SDI usage. While some attention is given to year. Brazilian researchers have frequently had undergraduate students in the document, it is papers published in the most important academic natural to expect that SDI-related themes will be journals in the field, and constantly participate in gradually incorporated into the curriculum of the international symposia and conferences. programs, as soon as accessing spatial data With this background for the development of through the Internet for immediate use is seen as a human resources in the knowledge areas that are valid and more efficient alternative to the current necessary for a national SDI, INDE‟s Action Plan document (CONCAR 2010) did not dwell on the availability of people with the required basic

National Data Spatial Infrastructure: The Case of Brazil

Table 2 - Potential participants of the Brazilian Directory of Spatial Data Acronym Name Function Fluvial and maritime ANTAQ Agência Nacional de Transportes Aquaviários transportation ANTT Agência Nacional de Transportes Terrestres Ground transportation Centro Gestor e Operacional do Sistema de CENSIPAM Environmental protection Proteção da Amazônia (SIPAM) CPRM Serviço Geológico do Brasil Geology and mineral resources Diretoria de Hidrografia e Navegação DHN Cartography (Brazilian Navy) (Marinha do Brasil) Departamento Nacional de Infraestrutura de DNIT Roads and highways Transportes Terrestres Diretoria de Serviço Geográfico do Exército DSG Cartography (Brazilian Army) Brasileiro Research on agriculture and EMBRAPA Empresa Brasileira de Pesquisa Agropecuária livestock Cartography, demography, IBGE Instituto Brasileiro de Geografia e Estatística statistical data ICA Instituto de Cartografia Aeronáutica Cartography (Brazilian Air Force) Instituto Nacional de Colonização e Reforma INCRA Settlement and land distribution Agrária Space research, remote sensing, INPE Instituto Nacional de Pesquisas Espaciais environmental monitoring MC Ministério das Cidades Ministry of cities MF Ministério da Fazenda Ministry of finance MT Ministério dos Transportes Ministry of transportation SPU Secretaria do Patrimônio da União Federal real estate records offline transfer and downloading practice. there is a more structured site for downloads, Currently, however, SDI is still a topic for which works much as a clearinghouse. IBGE, for graduate courses, and an item in the instance, maintains an FTP server with a wide geoinformatics-related research agenda. variety of geographic data layers and statistical information. 4.6 Available datasets Only a few institutions are currently offering INDE‟s geoportal, called SIG Brasil, is currently access through Web services. These include the 5 under construction . At INDE‟s current Web site, ministry of environment (MMA), CPRM, the there is a link that provides access to the National Brazilian geological survey, and, of course, IBGE. Directory of Spatial Data, which currently consists MMA has the most advanced site, with a of a description of the intended contents and a list GeoNetwork installation, from which a variety of of potential participants. These potential metadata can be searched. Available information6 participants are basically all federal spatial data includes data on environmental reserves, species producers (Error! Reference source not found.). distribution maps, ecological zoning, land use There are several Web pages from which the maps, and others. MMA also offers direct viewing interested user might download spatial and manipulation of data using an i3Geo information, but these are usually spread installation (see the Software and Network Issues throughout Web sites of the data producing organizations. In special cases, such as IBGE,

5 http://www.inde.gov.br 6 http://mapas.mma.gov.br/geonetwork/srv/br/main.home

National Data Spatial Infrastructure: The Case of Brazil section ahead). CPRM7 hosts OGC Web services dezembro de 1973). There are also standards for over geological information, such as geology maps geodesic surveying (Resolução IBGE PR 22, de 21 de and geoenvironmental maps, along with relief julho de 1983). One particular standard (defined by imagery and mineral provinces. IBGE has recently CONCAR‟s predecessor, COCAR, Resolução installed GeoNetwork8, and is currently COCAR 84, de 5 de dezembro de 1984) defines rules undergoing the production of metadata and the for the development of all other Brazilian creation of services related to basic cartographic cartographic standards. data. More recently, CONCAR issued a renewed INPE hosts an online catalog of remote sensing definition of cartographic standards (Resolução images, which are free of charge for download. CONCAR 01/2006) and, already within the scope The image library includes images from satellites of INDE, defined the Brazilian spatial metadata Landsat 1/2/3/5/7, CBERS-2, CBERS-2B, and profile (Perfil de Metadados Geoespaciais do Brasil – ResourceSat-1. INPE‟s initiative to offer remote MGB, Resolução CONCAR 1/2009, de 01 de sensing images free of charge has achieved wide dezembro de 2009). MGB is the result of the work repercussion, and inspired the opening of image of CONCAR‟s committee for structuring catalogs from other national space agencies geospatial metadata throughout 2008 and 2009. around the world, including NASA and the MGB is based on the ISO 19115:2003 standard on Landsat archive (Kintisch 2007). geographic information metadata. Since the ISO standard covers over 400 elements, a subset was Currently there is much more concern about selected to form the Brazilian metadata profile, publishing available data than on updating or after an analysis of metadata profiles adopted in enhancement of existing datasets. In some cases, Portugal, Spain, North America (USA and the development or updating of datasets runs in Canada), Peru and a proposed profile for Latin parallel to the development of SDI services, with America (CONCAR 2009). The profile is an established intention to integrate new data to organized into sections, as in ISO 19115: general the SDI when it is ready. One of the most identification, identification of the geographic interesting features of service-based SDI, namely dataset, constraint information, quality (including the possibility of publishing historical datasets lineage), maintenance information, spatial along with the most current ones as separate representation, reference system, content services, can modify established GIS updating information, distribution, and metadata on practices. This possibility is perceived in some metadata. In each section, fields are thoroughly ongoing SDI projects. described, their status as mandatory or optional is indicated, their constituent elements are listed, and 4.7 Standards a textual description is presented, along with There are several standardization laws and bylaws examples. Furthermore, a data dictionary is in Brazil that relate to cartography, spatial included in MGB‟s basic document, in which information and SDI. The competence for issuing names adopted by the standard and adapted from standards and regulations originates in a 1967 law ISO 19115 are described and characterized. (Decreto-Lei 243/1967), complemented by regulations issued in 1984 (Decreto 89.817 de 20 de junho de 1984). Cartography is also regulated by the national metrology system (Lei 5.966 de 11 de

7 http://geobank.sa.cprm.gov.br

8 http://www.metadados.geo.ibge.gov.br/geonetwork/srv/br/ main.home

National Data Spatial Infrastructure: The Case of Brazil

Table 3 - Adoption of geospatial Web services as part of e-Ping (Source: (CEGE 2009)).A – Adopted; R - Recommended Spec Themes Specifications Comments (*) WMS version 1.0 or later A

http://www.opengeospatial.org/standards WFS version 1.0 or later A http://www.opengeospatial.org/standards WCS version 1.0 or later A http://www.opengeospatial.org/standards CSW version 2.0 or later A http://www.opengeospatial.org/standards/cat Follow patterns and GEOREFERENCED WFS-T version 1.0 or later security policies INFORMATION – http://www.opengeospatial.org/standards/wfs R set by Interoperability the GT2, between particularly geographic WS-Security information To encrypt systems coordinates in conventional

Web services. The coordinates must WKT/WKB be in http://www.opengeospatial.org/standards/sfa R Lat / Long using

the datum SIRGAS2000 or WGS-84. Use GML whenever possible. SLTI, along with the national institute of E-Ping maintains an interoperability guide for e- information technology (subordinated to the government and an interoperability catalog. The office of the President) and SERPRO, the federal interoperability catalog10 includes a data information technology company, have developed formatting catalog, a Web services catalog, and an and fostered e-Ping9, an architecture for XML Schemas catalog (not yet implemented). interoperability in the Brazilian e-government. The There is also a metadata standard for e- architecture is intended as a TI infrastructure for government, called e-PMG (Padrão de Metadados do e-government initiatives, so that systems can be Governo eletrônico)11, but it is not referenced to an more easily integrated, and investments in the international standard, as in the case of MGB. As sector can be properly channeled, with lower to information organization and exchange, the e- overall costs. It also envisions the necessary Ping guide (CEGE 2009) simply establishes the integration with other countries and international use of XML, XML Schema, UML, XSL and other organizations. The e-Ping structure is initially well-known Web standards. The guide also defines conceived as a platform for the executive branch a navigational taxonomy, which is in fact a of the federal government, and covers several controlled vocabulary, called VCGE (Vocabulário areas, such as interconnection, security, access, Controlado do Governo Eletrônico). For integration, the information organization and exchange. e-Ping guide recommends the use of Web services

10 http://catalogo.governoeletronico.gov.br/

11 http://www.governoeletronico.gov.br/acoes-e-projetos/e-ping- 9 http://www.governoeletronico.gov.br/acoes-e-projetos/e-ping- padroes-de-interoperabilidade/padrao-de-metadados-do-governo- padroes-de-interoperabilidade eletronico-e-pmg

National Data Spatial Infrastructure: The Case of Brazil and the gradual shift towards service-oriented the expanding role of cellular phone based architecture (SOA), while simultaneously connections and the 49% yearly growth rate providing an architectural model (Arquitetura observed between 2002 and 2008. In the current Referencial de Interoperabilidade dos Sistemas rate of progress, PNBL expects connections to Informatizados de Governo – AR). Many reach 31.2 per 100 households by 2014, still specifications have been adopted by e-Ping, as leaving Brazil with proportionately less listed in Error! Reference source not found.. connections than countries such as Argentina, Notice the adoption of the most important Open Chile and Mexico. Furthermore, the study points Geospatial Consortium‟s Web services, and the out that most broadband connections are recommendation to adopt others; GML has also concentrated in São Paulo state. been adopted. On the other hand, considering both narrow and Currently, the interoperability catalog still does not broadband connections, Brazil has an expressive include any data formats, but some Web services number of Internet users, about 39% in 2008, are listed. INDE‟s geographic Web services are indicating that there should be much demand for not included in the interoperability catalog, and broadband services in the near future. therefore we observe that the integration initiative still lacks more support and needs more time so The expansion of broadband Internet access in that existing systems can migrate towards SOA. Brazil faces challenges in two main directions: (1) The adoption of international standards, however, establishing effective conditions in regulation for is a good starting point. competition among major suppliers of broadband services, and (2) expanding the geographic reach 4.8 Access issues of broadband coverage. PNBL acts mostly on the second challenge, intending to use public Current statistical analyses point out that Brazil resources to expand collective points of access may have an infrastructural bottleneck regarding (telecenters and governmental usage), with specific Internet access and usage. This prompted the actions towards remote areas and low income federal government to develop a national plan for municipalities. The plan also intends to foster broadband Internet connection (PNBL - Plano mobile accesses, establishing a goal of reaching 60 Nacional de Banda Larga) (MC 2010). The plan million mobile broadband connections, while intends to reach 40 million Brazilian households reaching 30 million fixed broadband connections, with low-cost broadband connections until 2014, by 2014. This means reaching 50 connections per thus fulfilling the goals proposed by the U.N. in 100 households by the time the country hosts the the World Summit of the Information Society, next soccer World Cup. held in 2005: taking the Internet to all communities, all schools, museums, public Notice that, as mentioned in the Funding section, libraries, hospitals and health centers, and all there is no established intention to charge for data governmental instances. access, and actually INDE‟s creation decree states that data will be provided at no charge for However, the main idea behind the plan is to registered users. Therefore, SDIs will be able to stimulate the private sector to invest in the side with, or, ideally, to expand on and development of the broadband infrastructure, in a complement the capabilities freely provided by competitive environment. The government plans commercial GI services and virtual globes to fulfill to act directly as well, focusing its investments in the needs of the society for geographic collective accesses, in the context of reducing information. regional and social disparities.

Estimates collected by PNBL show that in 4.9 Software and network issues December of 2008 there were 9.6 million In 2003, a free software strategy was included as broadband connections in Brazil, corresponding part of the national e-government policy. This to 17.8 connections per 100 households, and 5.2 action came as a result from a previous movement connections per capita. These numbers have by state and municipal administrations, which certainly increased strongly since then, considering perceived in the increasing availability of high-

National Data Spatial Infrastructure: The Case of Brazil quality free software an opportunity for The Brazilian government started funding a large- rationalizing expenditure in IT. Furthermore, it scale open source GIS project in 2000. The was a period of intensive evolution of the use of project is TerraLib, an open-source library for GIS the Internet by the government, and IT and associated applications (Câmara, Souza et al. infrastructure staples such as e-mail and Web sites 2000). TerraLib enables quick development of were beginning to become universal for public GIS applications and is available at organizations. Federal universities have also had a http://www.terralib.org. As a research tool, role in this push towards free software, since many TerraLib aims to enable GIS prototypes that of them had knowledge and experience in early would include recent advances in GIScience. On networking initiatives such as BitNet. An initiative the application side, TerraLib supports custom- towards building a low-priced “popular” computer built applications using spatial databases. The was also developed, geared towards basic main driving forces behind TerraLib are the education, and using free software as part of the National Institute for Space Research (INPE) and necessary cost reduction. By 2005, there were the Catholic University of Rio de Janeiro (PUC- some GNU-Linux distributions configured RIO). INPE has a mission to develop science, specifically for governmental use. More recently, technology and applications for space-related an agreement established the Open Document fields. PUC-RIO is home to one of Brazil‟s Format (ODF) as a standard for the Brazilian leading research groups in Computer Science. The government, with an interoperability rationale. TerraLib project came out of the need to offer Currently, the free software initiative is led by a Brazilian users an alternative to commercial GIS committee (CISL – Comitê Técnico de Implementação software. The software has functionalities for do Software Livre, Technical Committee for the spatio-temporal data handling that are not Implementation of Free Software), which meets available in any commercial or open source GIS periodically and publishes its deliberations on the software. Starting in 2001, INPE and PUC-RIO Web12. The initiative also maintains a portal13 for invested more than 50 person-years of the promotion of “public software”, i.e., software programming effort in TerraLib. that can be shared among governmental The TerraLib project started as a research organizations and branches, at every level. initiative to provide an innovative environment for Available public software include Ginga, a GIS applications and have a Low-Low middleware for interactive digital TV, and Cacic, classification, low shared conceptualization and an automatic agent for the collection of hardware low modularity, according to Camara and and software configurations in networked PCs. Fonseca‟s open source software (OSS) typology One of the strongest communities in the public (Câmara and Fonseca 2007). They claim OSS software portal supports i3Geo, an assemblage of projects have four different stages, varying from geospatial software geared towards the low to high potential for shared conceptualization dissemination of spatial data over the Web. The and from low to high potential for modularity. main components of i3Geo are PostGreSQL, Besides the low-low, OSS projects can also be MapServer and a Web-based viewer. The package High-High, with a high shared conceptualization includes utilities that facilitate the installation and and high modularity; High-Low, with a high configuration of these components. Some analysis shared conceptualization and low modularity; and and visualization tools are also provided. Users Low-High, with a low shared conceptualization include many ministries (the Ministry of the and high modularity. Environment was the responsible for the initial The project got started with funding from the development and GPL licensing of i3Geo), Brazilian Science foundation, CNPq. However, regulatory agencies, and other institutions. when the institutions involved considered that the project was mature enough for a production release, they devised a strategy to move the project to a more sustainable situation. INPE and PUC- 12 http://www.softwarelivre.gov.br RIO considered two alternatives to take the TerraLib project out of the “low-low” quadrant. 13 http://www.softwarepublico.gov.br The first was to move the project into the “low-

National Data Spatial Infrastructure: The Case of Brazil

high” quadrant (low shared conceptualization, Therefore, INPE and PUC-RIO chose to high modularity) and the other was to move the transition TerraLib to the “high-low” quadrant. project into the “high-low” quadrant (high shared The Brazilian government continues to support conceptualization, low modularity). the core team of developers of the kernel and has provided additional support for building a shared The transition of TerraLib to the “low-high” conceptualization of the product. These resources quadrant was considered difficult because of the have been assigned mainly for two tasks: capacity nature of the geoinformation technology. A typical building for commercial and public users, and GIS application consists of a core of functions direct support for service companies that use the that access a spatial database, and a set of software. INPE and PUC-RIO have invested customized user interfaces that fit the user‟s needs. heavily in user documentation and direct contact These user interfaces are difficult to share, since with commercial companies that could use the each application (e.g., an urban cadastre in a library for providing value-added services to GIS municipality) has specific requirements. In fact, market. There is evidence that this strategy is this customization of a core library of functions is paying off. On early 2006, more than 10 private a task carried out by service companies. The companies in Brazil develop products using kernel of these GIS applications is a tightly TerraLib. Since then, the number of downloads of integrated set of functions that are best maintained TerraLib and of TerraView, the viewing and by a small team of skilled programmers. analysis tool developed on top of TerraLib, has been increasing steadily (Table 4).

Table 4 - Number of downloads per year by registered users of TerraLib and TerraView (Source: INPE, TerraLib team)

2010 (Up 2005 2006 2007 2008 2009 to Total October)

TerraLib 7,944 9,747 8,935 9,195 7,301 6,563 49,685

TerraView 0 7,636 9,726 12,591 14,182 12,238 56,373

Note 1: Includes downloads from Brazil and various other countries (China, USA, India, Italy, Germany, France, Portugal, Canada, Argentina, Spain, Mexico, and others)

Note 2: Brazilian downloads count for abou 13% of TerraLib and 48% of TerraView downloads

National Data Spatial Infrastructure: The Case of Brazil

One of the important decisions on the TerraLib Bregt 2006) and first-generation national spatial project was to decide on its open source license. data infrastructures (Onsrud 1998) did not include There is a strong debate on which software Brazilian initiatives. distribution policy governments should take on publicly funded software. In TerraLib‟s case, the However, IBGE participates in many international decision considered the characteristics of the GIS initiatives and endeavors for geography, market. The GIS software market is an oligopoly cartography and statistics, including the in which two companies (ESRI and establishment of SIRGAS2000, the geodesic reference system for the Americas. IBGE and Intergraph) have a market share of 50% CONCAR have recently hosted a meeting of the (Daratech 2003). Therefore, there is a “lock-in” planning workgroup for the permanent committee effect (Arthur 1994) in the users‟ choice of for spatial data infrastructure of the Americas, in products. INPE considered that there should be a which a plan of action has been discussed for the strong incentive for commercial companies to use 2010-2013 timeframe15. Eight nations were TerraLib to reduce the “lock-in” effects of the represented by directors of their geosciences GIS market in Brazil. Therefore, TerraLib was institutes, with three more in contact through released as open source according to the LGPL video conferences. Seven workgroups were (Lesser GNU Public License). The LGPL allows proposed, in order to push forward various private companies to build their applications on aspects of international SDI development, top of OSS, and market them as proprietary including groups on institutional strengthening, software. The impact on the commercial market standards, best practices, innovations, diagnostics of TerraLib-based products is an indicator of a and technology. decrease on the “lock-in” effect, because of a suitable licensing policy.

4.10 International issues The Brazilian involvement with international instances regarding the creation of a global spatial data infrastructure is still in an early stage. Participation of Brazilian government officials in GSDI events is only recent14, and INDE‟s documentation does not include any mention to initiatives in that direction. Furthermore, academic surveys on spatial data clearinghouses (Crompvoets, Bregt et al. 2004; Crompvoets and

14 See, for instance, Fortes, L. P. S. Status of Spatial Data Infrastructure Construction for Brazil. Presentation in GSDI-10, St. Augustine, Trinidad, Feb. 2008, available at http://www.gsdidocs.org/gsdiconf/GSDI-10/slides/TS11.5.pdf 15 http://www.inde.gov.br/?p=762

National Data Spatial Infrastructure: The Case of Brazil

5. Best Practice Examples

5.1 City of Belo Horizonte: From mapping date, as required by the applications (Davis Jr. and Zuppo 1995). to GIS to SDI Belo Horizonte‟s GIS development efforts began The first challenge is directly related to research in in 1989, as part of the administration‟s response to topics such as data transfer standards, evolving the numerous new challenges presented by the towards interoperability, and then on to semantics 1988 Brazilian Constitution. The new constitution and ontologies. This caused part of emphasized a shift of responsibilities from the PRODABEL‟s GIS team to evolve into a research Federal and State levels to the local level. Various team, continuously seeking innovative approaches public services, such as health, basic education, and solutions to all these themes, often in water and sewage, energy, transportation, and cooperation with universities and research centers traffic were transferred from other levels of (see (Davis Jr. 1995; Fonseca and Davis Jr. 1999; government to the municipalities, along with Fonseca, Egenhofer et al. 2000; Davis Jr. 2002; regulations and standards that placed additional Fonseca, Egenhofer et al. 2002) for a sequence of pressure on them to be more responsive towards research initiatives conducted along that path). the demands of the citizens. The second challenge regards arguably the most Traditionally, in Brazil, most urban GIS projects important aspect of GIS as a technological tool, were led by tax collection departments, rather than which is its interdisciplinary nature. From this, the by urban planning departments. In Belo involvement of specialists from each application Horizonte, GIS was developed by the municipal area was required, thus forcing the establishment IT company (PRODABEL), which was also the of strong connections between PRODABEL‟s responsible for the city‟s cartography. This original GIS team and thematic specialists in each unusual scope of activities enabled PRODABEL, of the city‟s departments, particularly in health, early in the project, to form a multidisciplinary education, sanitation, transportation, planning and team of specialists in several IT areas (databases, licensing. In each of these areas, GIS became a information systems, computer graphics) as well tool geared towards technical activities, used as in fields such as urban cadastre, cartography, directly by technicians, with the IT and base map surveying and others. support being given by PRODABEL.

Concern on multiple uses of the data was present The third challenge required an approach that is early on the project. Ensuring the level of neither academic (as the first) nor integrational (as investments and political support required to push the second). Updating such a varied database the project forward, at a time when this (currently comprising over 6 million objects, technology was largely unknown, required project distributed through over 300 object classes) managers to propose applications in many requires a strong coordination of efforts and different areas. Project managers were also able to cooperation with external agencies (utility convince decision makers throughout the companies, state government departments, federal administration that a solid base map was required institutions, universities, and others). In turn, this in order to provide adequate support for the drive towards cooperation provokes an interest in thematic applications. With this, Belo Horizonte‟s data sharing among the municipal administration GIS faced, early on, three important challenges: and these external actors, which expands even (1) building a general-purpose database, (2) more the range of GIS data and applications, thus developing a wide range of applications, mostly in forming a virtuous circle, leading to increased data social fields, and (3) keeping this database up-to- quality, interoperability, and scale gains.

National Data Spatial Infrastructure: The Case of Brazil

Belo Horizonte‟s GIS path from its cartographic hardware and software acquisition. The beginnings to a true SDI can be divided into three proprietary GIS solution purchased by phases. The first phase corresponds to the initial PRODABEL had a number of advantages in the capacity building, including initial data set creation, technological side, but was somewhat difficult to hardware and software acquisition, personnel integrate with other information systems. Also, training, and initial applications development. In since PRODABEL was the only user in Brazil at the second phase, the GIS project acquires more the time, there was no source from which the maturity, shifting the focus to sustainability through company could hire development and training the deployment of a wide range of applications services. The solution envisioned at that time was and the assurance of data quality through to increase the investment in PRODABEL‟s own maintenance routines. The third phase personnel, and to identify as soon as possible a corresponds to the maturity of the GIS, a phase in desktop GIS alternative, in order to increase the which the accumulation of knowledge and capillarity of the GIS with reasonable costs. A experience with urban GIS leads to a more secure strategy to establish a firm foothold for the GIS in definition of goals and to a vision of the role this the municipal administration, through a wide technology can play in the future of local diversity of applications, was established. government. In this phase, a new technological Furthermore, specialists in each application‟s field architecture (Davis Jr. and Oliveira 2002) starts to were summoned upon to participate in the replace hardware and software from the early development efforts. At that stage, it was evident 1990s, data sets are renewed, and an already wide that a clear strategy for sustainability was required, cooperation agreement gains further momentum. thus inaugurating a new chapter in the project, the Sustainability Phase (1992-1995). INITIAL CAPACITY BUILDING (1989-1992) This Initial Capacity Building (1989-1992) phase SUSTAINABILITY PHASE (1992-1995) begins as soon as the decision was taken to create The development of the geographic database a new base map, in electronic form, for the city of continued with the addition of important elements Belo Horizonte. This base map was created from a of the urban infrastructure and services, street new aerial survey, followed by extensive and centerlines, and spatial reference units of all kinds detailed stereoplotting. At this time, PRODABEL (neighborhoods, health care districts, census started a series of discussions with institutions and sectors, planning sectors, and so on). companies that were deemed as possible partners PRODABEL‟s GIS team started to participate in in the use and updating of the base map. This many GIS conferences, nationally and included the utility companies (power, water and internationally, and to publish articles on GIS sewage, telecom) plus several municipal, state, and concepts, development strategies, technology, federal organizations. In these discussions, the maintenance, and other aspects in all sorts of possibility of sharing the data resulting from the publications. Regarding technology acquisition, in rather large investment in database creation acted this phase PRODABEL‟s multidisciplinary team as a catalyst to push cooperation forward. The became fully operational, and started to expand its joint project involved generating a compatibility reach through new technologies (such as desktop table for street codes. Later, this evolved into the mapping, remote sensing, digital image processing, development of our first common address data and others). Research initiatives began to take set, with over 300,000 individual addresses, place, motivated by the early publications and georeferenced as points (Davis Jr. 1993). The participation in academic events. creation of the addressing database was further accelerated by the creation of an image data set by A fundamental landmark of this phase is the the scanning of the formerly existent cadastral development of a maintenance methodology for plans. This element would also help PRODABEL the digital data (Davis Jr. and Zuppo 1995). In to accelerate the absorption of the previous fact, it was the result of the adaptation of manual, cadastral routines by the new system. paper-cartography based routines to incorporate the GIS as a tool and as the result of the In parallel, PRODABEL started internal and maintenance efforts (Silva and Ottoni 1995). Since external training for its IT GIS group and PRODABEL‟s cadastral team had a large 32

National Data Spatial Infrastructure: The Case of Brazil experience in field work, the maintenance and development efforts start producing results, methodology was created with most of the correct materialized as methodologies, in-depth studies, concerns in mind. The most important decision and experiments with issues that are clearly in the here was on prioritizing the maintenance of data project‟s future. A geographic data modeling that would potentially be shared among numerous method has been proposed, and is currently used applications. Data that were merely in many organizations throughout the country “cartographic”, meaning object classes that were (Borges, Davis Jr. et al. 2001). A new architecture vectorized form aerial photos solely to fulfill for the GIS was studied and is currently under cartographic standards, would be disconsidered implementation. This new architecture until some application determined its use and the incorporates elements that allow it to be adequate method for its maintenance. The interoperable and distributed, and with a strong development of this methodology is a classical support for digital imagery (Davis Jr. and Oliveira example in the life of the project of the fusion of 2002). Specialists at PRODABEL are currently practical and technical knowledge that lead researching advanced subjects, such as process successfully to emancipatory knowledge. and action modeling through ontologies, visualization in large spatial and spatio-temporal Agreements on shared data were also reached in databases, and service-oriented architectures. this phase. First, an agreement on street codes and addresses made it feasible to create a street code Another maturity aspect is the scope and range of conversion table involving all the coding systems applications. Most of the applications cover social in use (PRODABEL, power company, water and fields, and include, but are not limited to sewage company, telecommunications company, education, health care, transportation, urban police, and postal codes). As a result, many of the development and safety. With such a wide variety partners revised their conventional information of applications, and a significant number of systems to reflect and to facilitate this integration. partners there was a clear need for a better An agreement on the limits of some commonly arrangement as to the maintenance tasks. used spatial information units was also developed Although PRODABEL remained in charge of in this phase. coordinating the updating effort, the maturity of Belo Horizonte‟s GIS is better demonstrated by To summarize, the sustainability phase was looking at the cooperative efforts to maintain the characterized by numerous efforts to stabilize, addresses database. This cooperation started even standardize, consolidate, and evolve with the GIS before the GIS, with the matching of street codes towards its original goals. This was achieved by we mentioned before. Currently, a group of deepening the emphasis on applications, by professionals, representatives of every one of the increasing the GIS team‟s technical capacity, and 27 organizations that signed the cooperation by extending the reach of the GIS data to as many agreement, meet every two weeks to discuss partners and users as possible. Making good use of possibilities of action, to exchange knowledge on the investment in the GIS has driven these efforts, technical aspects, and to coordinate joint efforts. thus generating a successful strategy of turning something that was seen as expensive into This kind of data, expertise, effort, and investment something perceived as inherently valuable, inside sharing initiatives, along with the wide availability and outside the municipal administration. of general use data, in standard formats, available on-line, and housed at a “neutral” server, MATURITY PHASE (1995-PRESENT) motivates us to begin thinking in terms of a SDI for Belo Horizonte. Actually, the cooperation (and The next phase of the project is characterized by the interdependence that results from it) among extensive usage of GIS resources, and by a drive multiple partners, to support multiple applications, towards a new technological architecture (Davis Jr. with multiple clients, correspond to what is and Oliveira 2002), through which the distribution expected of a true SDI. Technological barriers of data and the integration with partners can be were once great, at the time every partner used a achieved with greater ease and flexibility. GIS from a different vendor. With new Regarding the technological aspects, in this phase technological tools, such as spatial databases and we can actually say that PRODABEL‟s research

National Data Spatial Infrastructure: The Case of Brazil

Web-based GIS, these barriers started to diminish paper also mentioned national projects that in importance, and future pro-SDI elements (we promoted spatial data acquisition and can mention research topics such as ontology- dissemination at that time, led by public driven GIS, geospatial semantics, service-oriented organizations which were relevant to establish a architectures, OpenGIS standards, geospatial Web national SDI, including, among others, the services, and many more) will reduce those Brazilian geological service (CPRM), the The barriers even further. Brazilian Agency for Agricultural Research (EMBRAPA) and IBGE. The research mentioned 5.2 Bahia State: IDE-BA and Geoportal incentives in place to produce and integrate Bahia geographic information, such as basic and thematic spatial data from various Brazilian states. Bahia is one of the largest Brazilian states. With These incentives came from public policies in 564,692.67 square kilometers, it is almost the size fields such as cadastral regularization in slums, of France. Salvador, the state capital, currently water resources, environmental governance, houses almost 2.8 million people – 19% of the support to territorial management and planning, state‟s population. Geographic information is and some other government activities that posed regarded as an important item for governance and strong demands for geographical data (Pereira and public administration and territorial planning. In Rocha 2003). Bahia, the SDI initiative predates INDE by many years, as described next. Based on this situation, and observing international experiences, REBATE presented, in In 2002, REBATE – a spatial information 2002, and detailed in 2003, a proposal for a multi- technologies research network composed by institution arrangement to develop a Spatial Data public and private sectors and led by the Federal Infrastructure in Bahia (Pereira and Rocha 2004). University of Bahia – showed, with a survey, that In the proposal, a coordination board would take most spatial data sets in Bahia state were hard to responsibility for establishing policies and access. Only one of the 30 surveyed organizations standards, for organizing a data framework and offered a link to download spatial data from the generating metadata content, and for developing Web. To overcome this situation, REBATE and deploying a geoportal as a tool to distribute proposed “to establish more favorable basic spatial data and to provide information environmental conditions to diffuse Geomatics about any existing spatial datasets produced in among private and government institutions, Bahia. The idea, in 2003, was to change the through a Spatial Data Infrastructure, in order to situation by making tools and links available to guarantee diffusion and access to geographic geographic information users (both organizations information” (Pereira and Rocha 2002). and citizens), so that they could to discover what spatial data were available, and where and how to A year later, a new survey found that the spatial access it. The geoportal was envisioned as a virtual data exchange between organizations was repository of all spatial data produced and increasing, as well as the number of spatial data maintained anywhere in Bahia state, regardless of elements collected, but data were still not openly storage format and structure. It would offer basic available to be shared. To make things worse, only spatial datasets to download, an on-line metadata a few state government Web pages provided catalog with links to other datasets, and possibly information about GIS projects, metadata and some Web mapping services based on available how to access spatial data (Mattos 2003). In 2003, data (Pereira and Rocha 2004). At that time there REBATE also published a research paper where it was already a formal proposal to the state‟s summarizes initiatives in organizing state and local Cartographic Committee to coordinate a state geographic information, particularly in Minas SDI, generating an executive order from the State Gerais, Rio Grande do Sul, São Paulo, Paraná, and of Bahia, which restructured the committee Bahia states. Beside these actions, the research (Decreto n. 8.292, de 14 de agosto de 2002). identified some other initiatives in Goiás and Mato Gosso states concerning inter-institutional In this context, the implementation of a geoportal coordination and geographic data framework was proposed in 2004 as a strategy to start dissemination (Pereira and Rocha 2003). That 34

National Data Spatial Infrastructure: The Case of Brazil building an SDI in Bahia state by improving of environmental licensing activities. To carry out geographical data and information visibility these agendas, SMA-SP establishes links with (Rocha and Pereira 2004). The initial proposal other state government organizations, municipal evolved into a conceptual design, developed by governments, NGOs, academia and federal PRODEB, Bahia state‟s information technology institutions. company, in a partnership with the state‟s social and economic studies organization (SEI – Since it is the focus of all environment-related Superintendência de Estudos Econômicos e Sociais da activity in São Paulo state, SMA-SP considers the Bahia), which is also responsible for Bahia‟s adequate management of spatial information on regional cartography. In April 2005, the the environment to be strategically important to conceptual design for a Bahia SDI was concluded their work. Since it is the confluence of several (Pereira et al., 2005). This conceptual design organizations, most of which functioning as data evolved later, considering developments on Web producers, the idea of creating an SDI is quite services and SOA-based SDI, so that a new appealing to SMA-SP, since it is seen as a way to proposal was needed (Pereira, Davis Jr. et al. avoid duplicating efforts in spatial data 2009), now named IDE-BA (Infraestrutura de Dados management, while providing an opportunity for Espaciais da Bahia), which includes the Geoportal sharing and publication of an extensive array of Bahia and a metadata catalog. Currently, all spatial data. specifications for the development and deployment of IDE-BA are ready for public IDEA, which stands for “Infraestrutura de Dados bidding, while a new set of digital cartographic Espaciais Ambientais” (environmental spatial data data is being finalized. Funding was obtained as a infrastructure, in Portuguese), is the name of collection of small shares of international SMA-SP‟s SDI. As in the case of IDE-BA from financing for public works, such as road Bahia State, IDEA has also been proposed within construction, from sources such as the World a service-oriented framework, with a central Bank. metadata and services catalog, and a geoportal. The main data sources for IDEA include some of 5.3 São Paulo State: IDEA and DataGEO SMA-SP‟s units, such as CETESB (Companhia Ambiental do Estado de São Paulo), along with the São Paulo State‟s Environment Secretariat state‟s cartography and geography institute and (Secretaria do Meio Ambiente do Estado de São Paulo – IBGE. SMA-SP) was created in 1986 to promote the preservation, improvement and recovery of Currently, IDEA and SMA-SP‟s geoportal are environmental conditions in the state, fully specified, and a request for bids is about to coordinating and integrating actions regarding become public. An effort, in cooperation with environmental protection. Three years later, SMA- academic partners, is being developed towards SP was also put in charge of creating and creating a conceptual model and an ontology for implementing the state‟s environmental policy. environmental management and monitoring, in SMA-SP is also responsible for environmental order to subsidize the metadata on data and licensing and monitoring, for promoting services with meaningful semantic annotations. environmental educational, and for developing The request for bids includes the development standards and regulations. Several organizations and deployment of the geoportal and of a work under SMA-SP‟s umbrella, including metadata management system, and the preparation departments, coordinations and foundations, with of a set of background services that provide access various complementary mandates. to basic cartographic data. The winner of the bid must also provide technology transfer, in the form Since 2007, SMA-SP has defined 21 strategic of training services and technical support. A full environmental projects, which address a variety of set of specifications and guidelines for the environmental agendas, such as the reduction of expansion of IDEA beyond the first services is solid waste, sewage treatment and destination, air also called for in the terms of reference. INDE‟s pollution, water and groundwater quality, standards and definitions, particularly in the case ecotourism, environmental education, reduction of the Brazilian metadata profile, are already of sugar cane residue burnouts, and the integration 35

National Data Spatial Infrastructure: The Case of Brazil included in the specifications. As in the case of exchange, after having contact with the plans for IDE-BA, funding for the creation of IDEA is INDE and by negotiating a similar initiative within coming from a small share in a large international the state administration. Under the coordination financing project dedicated to highway of IGA, Minas Gerais developed a number of construction and improvement. integrated actions: (1) the development of a plan for the updating of the state‟s cartography, using 5.4 Minas Gerais State: IEDE new technologies, (2) the reactivation of the state‟s cartographic committee, (3) the revision of the The government of Minas Gerais and its state‟s network of geodesic landmarks, and (4) the organizations was, partially as a consequence of creation of IEDE (Infraestrutura Estadual de Dados the success of Belo Horizonte‟s GIS project, a Espaciais, State Spatial Data Infrastructure), an pioneer in GIS applications at the state level. As exact replica of INDE except for the regional early as 1994, Minas Gerais had a project to put scope. In fact, a gubernatorial decree determining together and disseminate a common set of basic the creation of IEDE is a nearly exact replica of digital cartographic data. The project, called INDE‟s creation decree from December 2008. As GeoMinas, created “data kits”, which were freely a result, IEDE strictly adheres to INDE‟s distributed using CDs. In 1996, the contents standards and regulations, and establishes identical became available for download in a dedicated Web policies, including the costless dissemination of site16 , which is still in operation, although with no data. new content. Data producers involved in GeoMinas included the state‟s cartography and The new datasets that are being produced for IGA geography institute (IGA – Instituto de Geociências and IEDE jump for the traditional 1:100,000 and Aplicadas), state-owned utilities companies and 1:50,000 scale maps to digital contents produced many state secretariats. Other participants for 1:10,000 scale, including 3D relief coverage, included federal and local government institutions, digital orthophotos and hi-res satellite imagery, a universities and research centers (Davis Jr 2002) geographic database and a refined digital terrain model. An initial survey of Belo Horizonte‟s Along with the data kits, GeoMinas also metropolitan region was started in May 2010, after developed initiatives towards technology a successful pilot site at Itabira, a city hosting a dissemination and development, education, and traditional and rich iron ore province. Initial metadata gathering. Technology was the focus of IEDE data are scheduled to include high discussion groups, which produced, among other resolution satellite imagery gathered recently for results, an agreement on a common data exchange forestry control, geocoding information from the file format (Davis Jr. 1995). The education state-owned electrical utility, and other sources. initiative fostered the creation of a graduate IGA plans to launch a geoportal (PMDG - Portal (specialization) course on geoprocessing, Mineiro de Dados Geográficos), and to simultaneously coordinated by UFMG, starting in 1997, initially make some data available to the general public dedicated to state employees, but later open to the using Google‟s Enterprise services. An effort community. As to metadata, a large effort resulted towards the creation of a metadata catalog will in the development of an information system also have to be developed, although there is hope dedicated to managing metadata -- although the that the previous experience with geographic data term was not in use by then (Marinho 1998). A cataloging and the cooperation of GIS technicians political change brought GeoMinas to a halt in from many GeoMinas participants will boost the 1998, although most of the informal network of process. technicians and professionals continued to meet and work under Belo Horizonte‟s data exchange Financing for IEDE comes from two sources, the agreement. state‟s Treasury and, where applicable, the state‟s research and development fostering agency Recently, Minas Gerais state regained momentum (FAPEMIG – Fundação de Amparo à Pesquisa do in the direction of improving geographic data Estado de Minas Gerais). FAPEMIG receives about 1% of the state‟s budget to invest in R&D projects 16 http://www.geominas.mg.gov.br/ statewide, and it is obligated to dedicate part of

National Data Spatial Infrastructure: The Case of Brazil those resources to state-owned research centers. INPE had operated a LANDSAT remote sensing IGA, which was hardly ever seen as a research ground station since 1974 and had established a facility, gained this status and currently benefits remote sensing application group since 1975. from FAPEMIG‟s financing programs. Lack of From May 2004 to May 2005, INPE delivered technically qualified personnel in geoinformatics is more than 100,000 CBERS-2 CCD images, which seen as a hurdle by IGA, although they have are available free to Brazilian users through the access to the support of the state‟s IT company. Internet. CBERS-2 is the second of a series of five remote sensing satellites being developed in 5.5 INPE: Remote Sensing SDI cooperation between China and Brazil between 1988 and 2011. These numbers make Brazil one The Brazilian National Institute for Space of the world‟s largest distributors of remote Research (INPE), a major research institute sensing imagery. funded by the Brazilian government, is for Brazil roughly what NASA is for the U.S. INPE carries INPE‟s foray into the GIS software market started activities that range from launching observation in the 80s, when the Brazilian Government satellites, collecting their data, and creating and adopted a “market reserve” policy aiming at the using environmental models. INPE is the research protection of the local information technology institution designated by the Brazilian government industry. For eight years, there was a heavy to collect data and perform calculations on the economic incentive provided by the government annual rate of deforestation of the Amazon rain to produce local information technology (IT) forest. hardware goods. The „market reserve‟ legislation provided a powerful incentive for local Currently, INPE has over 100 scientists working development of GIS and Remote Sensing Image on research questions directly or indirectly related Processing technology, insofar as a typical price to Earth Systems Science. Additionally, INPE for a single-seat system at this time was maintains graduate programs in Meteorology, approximately US$ 100,000, including hardware, Space Geophysics, Remote Sensing and Computer software and training costs. As a result of this Science. Collectively, these graduate programs scenario, INPE established its Image Processing have produced over 75 Ph.D.s and 241 Masters Division in 1984 with the following aims: (a) local theses since 1980. To carry out such research, development and dissemination of image INPE assembled an array of state-of-the art processing and GIS systems in Brazil; (b) facilities for field and laboratory measurements, establishment of a research program in Image supercomputers for global and regional Processing and GIS, and (c) pursuit of cooperative atmospheric and oceanic modeling, an programs with universities, government instrumented research aircraft, a number of organizations and private companies. satellite receiving stations for environmental and meteorological satellites, and several research In 1986, INPE brought out Brazil‟s first laboratories in Brazil. GIS+image processing station based on a MS- DOS PC-286. The system was used extensively by Historically, INPE has focused its attention on a 150 universities and research labs up to 1996. In number of issues of direct relevance to the 1992, given recent advances in hardware and understanding of the functioning of natural software and the changes in information systems, mainly the Brazilian rain forest, and how technology policy in Brazil, INPE started the this and related systems are being affected by development of a free GIS software, SPRING, climate and land use changes. Important which is widely used in GIS courses in Brazilian contributions have been given to the attempt to universities. INPE is also developing an open understand natural climate variability in many time source GIS library in partnership with the Catholic and temporal scales, the climate impact of University in Rio de Janeiro. deforestation and of biomass burning, and the complex dynamics of land use change in the Recently, INPE launched an initiative called region. Global Forest Information System (GFIS). Among its principles, INPE proposes that any

National Data Spatial Infrastructure: The Case of Brazil individual worldwide would have the right to copy essential data and models easily available. The key and use the data for his own purposes. A GFIS objective is to enable cooperation and should allow remote access to its database so participation from the various actors involved, scientists can experiment with their own tools. notably scientists, policy makers, and common Applying this idea to environmental monitoring, citizens. Content as distinct as satellite images, INPE envisions a Global Forest Information spatial data infrastructures, geobrowsers, research System (Câmara, Vinhas et al. 2009) along the data, laws and policies, and citizen-provided lines of an enhanced "Digital Earth" concept. information can be indexed, searched, discovered According to INPE‟s view, the Digital Earth and used by all interested parties. In INPE‟s view, metaphor can become much more than what although nations should be the ultimate today‟s virtual globes provide, and work as a large- responsible for forest monitoring and reporting, scale repository of data, services, and models that improving communication in a setting such as the can be discovered and used by the multiple actors one proposed here would be helpful in many involved in rainforest monitoring. A Global Forest different ways, particularly for involving all Information System is a Web application that can interested parties and helping to eliminate increase the capacity of rainforest nations to speculation on the validity or reproducibility of estimate and monitor deforestation by making scientific results.

National Data Spatial Infrastructure: The Case of Brazil

6. Lessons Learned and Insights Gained

SDI is a combination of technologies, people, made to allow the participation of the most policies and standards required to foster the important institutions in the process, and the dissemination and usage of geographic resulting action plan has arisen from consensus, information through all levels of government, rather than from a centralized planning decision. private and non-profit sectors, and academia (Fonseca 2008). In a sense, one can say that institutional maturity led to the kind of cooperation and agreement Nowadays, GIS technologies are widely available, necessary to create something like INDE. Of both as proprietary and free software. course, the initiative is in its initial steps, and much International standards are guiding both the remains to be seen as to the reality of funding development of such software and the INDE‟s operation and to the actual usage of the organization of large repositories of geographic information provided in the infrastructure. IBGE data, which can be searched and discovered with is currently undertaking an initiative to disseminate the help of metadata, which in turn are also INDE in GIS-related events countrywide, and is governed by international standards. The current offering support for the establishment of local or combination of technological tools and thematic SDIs that are to become part of the international standards is showing in practice that national infrastructure. CONCAR and IBGE are SDIs can be envisioned, designed and working with the objective of encouraging GIS- implemented to cover a broad range of scales, enabled organizations to move towards SDI and from global to local, based on the same to join INDE. If the installation and configuration fundamental architecture. As to people, we have of INDE-compatible server becomes simple shown that Brazil has a diversified and capable enough, many more geographic information academic sector, with a worthy presence in world sources can join the bandwagon, in turn increasing science, and therefore the country is capable of the importance of INDE to the society. It is educating people in all required subject related to important to ensure that not only governmental or SDI. There is, nevertheless, a strong market “official” data sources are allowed in; there must pressure on highly specialized professionals, be openings for other types of organizations to resulting from the recent increase in economic join, making available then, for instance, research growth. data, community-oriented points of interest, commercial locations, and others. The remaining part of the equation, namely policies, is the most interesting. Coherent and As in the case of GIS projects from the 1990s, effective policies are only possible in a context of current SDI initiatives appear to be growing out of institutional maturity. Taking Brazil as an example, the already existing infrastructure and funding, we observe that the creation of INDE was embedded in data collection and updating efforts. possible because various conditions were met. In some cases, special projects have been First, there is a national geography/cartography/ developed, seeking funding from organizations statistics bureau (IBGE) in place, with a long term such as the World Bank, but such projects are involvement in geographic information and a presented as a small IT part of a much larger vision on the demands for GI from the physical infrastructure initiative. In this sense, a government and the society in general. IBGE, in relatively small percentage of a large effort is being turn, is part of a broader arrangement of redirected towards improving information cartographic institutions, all of which have availability and dissemination, which is a positive undergone a transition from conventional outcome. Since geographic information can be mapping to GIS technologies in the last two used in many other unforeseen uses, the positive decades. When CONCAR, led by IBGE, set forth outcome is potentially multiplied by the quantity the initiative of creating INDE, provisions were and variety of alternate uses of information, an 39

National Data Spatial Infrastructure: The Case of Brazil improvement which is at the core of SDI necessary. However, achieving broad institutional development goals. Sharing part of the agreements remains as difficult as in those days. computational infrastructure in the establishment of SDIs is now much easier than it was to share SDIs can be seen as a “publication platform” by spatial data 15 years ago. Therefore, organizations data producers. Current data collection and could cooperate in establishing the core of an validation methods can go on as usual, and SDI, and divide among themselves the hosting of periodically a new data release can be copied from Web services for that SDI, thus forming local- or maintenance servers to the SDI servers and made theme-specialized SDIs that could be eventually available to the users. The coexistence of several integrated to INDE. This is reminiscent of data releases, each of which with its own metadata, cooperation agreements for GIS data sharing, as enables users to perceive temporal evolution. This initiated by some GIS projects in the 1990s, with is similar to the comparison of paper maps from the difference that now data replication is not various dates, something that GIS datasets kept us from doing in the last two decades.

National Data Spatial Infrastructure: The Case of Brazil

7. Long-Term Perspectives

Overall, current SDI-related initiatives share the considering also the services rendered to other vision of providing useful information to the organizations and to the society. society, thus considering such information to be a “public good”. Although most of the required The sustainability of SDI in a country where legal framework for data publication is currently in resources are relatively limited is an important place, some SDI creation initiatives seem to be issue. If geographic information is considered politically held back by the lack of legislation that mission-critical for government agencies, then mandates the publication of non-sensitive data, as there is a stronger possibility of a sustainable SDI. in U.S.‟s Freedom of Information Act. However, a In Brazil, because of the regional and global promising bill on open access to public importance of the rain forest, environmental information (currently in the Brazilian Senate, concerns seem to be an area which might lead to after being passed by the House in April 2010), this path. For instance, environmental policy presents an opportunity to change this situation17. making requires a substantial amount of The bill applies to every branch of government information, ranging from the scientific point of (federal, state, municipal), along with non-profit view (in many disciplines) to the experience of the private entities that receive public funding. local population. Scientists constantly gather data, perform analyses, and generate information and Curiously, there is not much concern as to the recommendations for policy makers. Wide access assessment of the impact of SDIs. Beyond to that information is required, so that not only requirements towards recording the number of policy makers can decide on more solid grounds, accesses, current projects carry no special but also the targets of policies can understand the provision towards dimensioning the demand for reasons behind governmental action. Clear spatial data and its rate of growth more accurately. indicators of progress must be in place, so that the The lack of such information can lead either to effectiveness of policies can be assessed. People in over- or underspecified computational general must also be allowed to participate in a infrastructures. Financially, information producers more direct and active manner, getting to know have the intent of supporting the costs of SDI facts about the region, expressing themselves, and creation and maintenance, and there is no contributing to find solutions. In this scenario, it is foreseeable intention of charging for access. On evident that information must flow and connect as the contrary, some initiatives, including INDE, many people as possible. Although, in many specifically require open and costless data access. aspects, this kind of arrangement exceeds the Some projects count on World Bank financing for current concept of a traditional SDI, it has the starting up, and promise a reasonable maintenance potential not only sustain an SDI initiative but also plan with their own resources. This is in line with to expand it in many ways. Such an SDI is older GIS initiatives in Brazil, most of which different from the traditional approaches, in which never charged for data. It also reflects in part the SDIs operate mainly as automated map cooperative nature of some GIS initiatives, in distribution systems. This broader SDI would be which costless spatial data interchange has been an enabler for understanding space. The SDI taking place since the early 1990s, covered by would not only deliver general-purpose maps, but cooperation agreements and other legal disseminate spatial data to support sustainable instruments. This is a sensible perspective, since it development policies. It is necessary to go beyond simplified agreements and facilitated cooperation, SDI to integrate science and communities in the but budgeting for data providers must be analyzed effort of creating, enforcing, assessing, and revising environmental policies. This kind of SDI 17 PLC 41/2010 – Lei Geral de Acesso à Informação (General Law is one of the ways of making the Brazilian SDI on Information Access). Available at initiative sustainable in the long run. http://www.senado.gov.br/atividade/materia/detalhes.asp?p_cod_m ate=96674, last access Feb. 08 2011.

National Data Spatial Infrastructure: The Case of Brazil

Information infrastructure is a big challenge, since However, the decree does not include any kind of access to potentially large volumes of data online penalties for non compliance – thus making requires broadband connections. A plan has been participation optional in fact. Nevertheless, the issued by the government to pursue rapid participation of other federal geographic improvements in that direction (MC 2010), but so information providers should raise the need for far concrete actions have not been taken. In motivation, more than enforcement. The discussions with potential SDI users, some of forthcoming legislation on information access can them expressed concerns on their capacity to hire provide a valuable incentive, considering that SDI fast enough Internet links, and would like to have is arguably one of the best ways to disseminate a backup plan, involving data replication. The geographic data in a large scale, and the existence potential impact of networking limitations on SDI of INDE may render other alternatives less usage remains to be seen. interesting or economically less viable. In that respect, there is reason to believe that INDE may While we have not listened to many complaints on be called upon to provide better visibility for the the availability of technical personnel, current efforts of participant institutions, as a way to Brazilian legislation for hiring people in the public generate political return for their efforts. sector is very strict, and might hinder the necessary expansion of technical staff. This is of With the current availability of free spatial data particular importance to information providers access, such as Google Maps/Earth, Bing Maps, that do not have strong IT support, either internal Yahoo!Maps and OpenStreetMap, many people or from a sister organization. Anyway, the private do not clearly see the need for SDIs, other than market for IT professionals is on the rise, with being the outlet for public spatial information. increasing wages, and this might point towards the While public organizations have been slowing need for data publishers to hire specialized IT down their data collection initiatives, private services. companies are roaming the world to collect and organize information that is offered to the society We see the need for better coordination among at very little or no cost. Nevertheless, it is the governmental agencies in charge of SDI combined availability of multiple data sources that development and e-government initiatives. For empowers the user in selecting what is best for his instance, there is currently no mention of INDE or her intended application, thus enabling a or public geographic information in the Brazilian “hyper” global GIS in which everyone can e-government program, and INDE‟s portal does participate. In this way, volunteered geographic not mention e-government initiatives either. information (VGI) initiatives should be directly Although we agree that there has been little time linked to SDIs, much in the spirit of current Web to promote such integration, we see it as a natural 2.0 trends. Citizens can contribute to maintain and necessary step in both initiatives, especially public data sources, and the society can benefit when the bill on information access passes in from the outcomes of this cooperative setting, Congress. which in turn is also very much in the spirit of SDI. As established by INDE‟s creation decree, the participation of federal institutions is mandatory.

National Data Spatial Infrastructure: The Case of Brazil

8. Conclusions

The major result in the Brazilian SDI policies is by INDE. This way the funding will support both the recent creation of INDE (Infraestrutura Nacional strengths in the current Brazilian scenario: the de Dados Espaciais), the Brazilian spatial data newly crafted legislation that created INDE and infrastructure. The executive order that officially the successful independent SDI projects, while at created INDE defines it much in the spirit of the same time reinforcing a bottom-up strategy for current national and global initiatives such as the creating and disseminating INDE. The same U.S. National Spatial Data Infrastructure (NSDI), applies to thematic SDIs, such as the European INSPIRE, and the United Nations DataGeo/IDEA, either national or local in scope. Spatial Data Infrastructure (UNSDI). It Current strategies by interested agencies that encourages government agencies to create and piggyback GIS and SDI in funding for larger share geographic data following the standards and projects seem to work well, because they reinforce regulations laid out by INDE. INDE relies on two planning and management with a very small share organizations, IBGE (Instituto Brasileiro de Geografia of development funds that are provided for e Estatística), the Brazilian Institute of Geography improving physical infrastructure and major public and Statistics, and CONCAR (Comissão Nacional de services. Cartografia), the Brazilian National Cartographic Committee. IBGE is in charge of creating, Along with cartography, IBGE functions as the implementing and maintaining the SIG Brasil Brazilian census bureau, also in charge of geoportal on the Web, which should provide socioeconomic surveys and statistical data. IBGE access to all of INDE‟s geospatial data and provides operational support to CONCAR, which services. CONCAR has a supervision role and is creates and maintains most cartographic standards also responsible for creating evaluation policies and regulations. Both IBGE and CONCAR are and regulations for new INDE-related projects the two main agencies responsible for INDE, the that involve the acquisition of geospatial data, and Brazilian SDI. The third important agency to make sure that INDE‟s standards match involved with INDE is SLTI (Secretaria de Logística existing legislation. e Tecnologia da Informação), the Ministry of Planning‟s Secretariat of Logistics and Brazil is a large country with a healthy economy Information Technology, which organizes logistics and a number of challenges. One of them is how and TI initiatives for the federal government. to distribute resources equally and prioritize the Unlike some other subdivisions of the federal most needing regions. Geographic information government, the three main organizations (IBGE, and its distribution through SDIs can play a CONCAR and SLTI) that are important to INDE decisive role in this process. The Brazilian SDI are relatively stable and have a deep knowledge on scene is characterized by the play between two the creation and use of geographic information. tendencies: centralizing and decentralizing. Institutional stability, technical competence and Brazilian funding structure forces local and state adequate funding are very important for both government to depend too much on federal funds. information providers and regulation agencies, so However, as we reported here, the most successful it is our opinion that such organizations are a GIS and SDI projects to date come from local and prerequisite to successful SDI development in the state agencies. Therefore, in order to keep this national scale. balance and at the same time extract the best from it, this report recommends that World Bank Furthermore, IBGE has been slowly but steadily funding should prioritize local and state initiatives. pushing itself into the new information age. All We also recommend that this funding should not data for the 2010 census were collected in the field be made through the federal government. using handheld computers, and today most of the Nevertheless, funded projects should strictly census results are available in digital form. IBGE follow the recommendations and requirements set also managed distribute the geographic features 43

National Data Spatial Infrastructure: The Case of Brazil related to census data. CONCAR is doing its job databases. These experts should know how to take of creating and maintaining Brazilian cartographic advantage of the increased availability of data as standards. Of course it is a challenge for both INDE is being established. The government institutions, the former 73 years old, the latter 44 agencies that are the early adopters of GIS years old and recently renovated, to keep up with technology are usually the main providers of the Internet and its constant changing scenario. qualified personnel for the market, but SLTI, which is apparently more agile, since it was government is in turn very slow in the hiring born in the new era, is promoting new standards process, and it can be very difficult for such as e-Ping, a set of directives for governmental agencies to compete with the interoperability among federal government private market‟s salaries. organizations, which are fundamental for the success of INDE. Brazil has a good number of undergraduate programs in the Geosciences with 162 Earth E-Ping needs to be more widely known and Sciences programs (geography, geology, studied, including its geographic data section. This oceanography, hydrology, and so on), 1,673 can be done through more open discussion Computer Science/Information Processing through academic and professional meetings and programs, and 2,247 engineering programs. There conferences. Academic funding needs to follow also special studies and graduate programs. the traditional model through Science Although the market is currently in high demand foundations. Professional meetings can be funded for all of these professionals, Brazil has both the as special topics in large development projects. potential human resources and the training and Again, special lines of funding for Masters and Ph. education infrastructure. It has also the plan laid D. programs would encourage the depth that is out by INDE, which mentions three groups of needed to integrate INDE into the backbone professionals that should become the target for provided by e-Ping. We mentioned the lack of education strategies: (1) institutional users, (2) adequate connection between SDI and e- experts in management, production, and use of government initiatives in Brazil; maybe e-Ping‟s data, and (3) technology professionals and evolution can serve as a bridge, so that geographic proposes a broad scope of education programs information services can become and effective which include undergraduate and graduate part of the country‟s e-government strategies. education.

It is hard for traditional institutions to keep up It is important to find mechanisms for funding the with the dynamic landscape of today‟s creation of short and long term education interconnected world. After initiating INDE, program in GIScience area. They should IBGE and CONCAR must strengthen their complement the current offerings that already connections to SLTI, in order to keep geospatial offer a good foundation in the associated sciences. data and technologies within the scope of Besides that, students should also be funded Brazilian governmental interoperability initiatives. directly and indirectly through encouragement of A stronger connection to academia and research possible promotions in their professional careers. on geoinformatics and the numerous areas of So studies to make this happen in government knowledge that are potential users of INDE is agencies need to be developed. A model similar to also necessary, in order to foster new sources of what is currently used to encourage scientific innovation in SDI and GIS-related technologies in production in Brazilian universities might be used. Brazil. Any funding program should be encouraged to follow the human resources guidelines suggested In a market where technology is constantly in INDE‟s initial plan and future updates. changing, government agencies and private companies struggle to adapt themselves to these In that respect, another important changes, including staffing of their technical team. recommendation regards employees of key Hiring cartographers and geographers for map organizations such as IBGE, CONCAR, and making activities will not solve their problem. SLTI. It is necessary to commit funds to refocus They need experts in spatial analysis and in spatial the current and form new human resources for

National Data Spatial Infrastructure: The Case of Brazil these agencies, considering the new technological institutions. Large government agencies are able to environments and paradigms. This effort has to rely on their internal IT infrastructure but many leverage the early Brazilian GIS tradition of mixed local governments lack this kind of support. conferences in which both users and academics shared their experiences. The collaboration and Thus, it is necessary to create basic applications knowledge sharing between universities and the directed to specific markets such as sustainable public sector has to be encouraged. This can be agriculture, local government land use and done leveraging CONCAR‟s regional meetings to taxation, public health, and crime prevention. bring universities to give workshops and seminars These applications should be based on open for government employees. The participation of source software, be able to run on basic computer IBGE employees and CONCAR members in platforms and software, follow standards set by purely academic conferences should also be INDE, and come up training packages. These supported. The First Global Forest Systems initiatives should be based on partnerships with workshop18 that took place in Rio in 2009, in universities, state agricultural agencies, and other tandem with an academic conference, is a good institutions or organizations that have access to example of such an initiative. each and every Brazilian locality, and could be the source of thematic SDIs. INPE and its associated We also feel that incentive to employees can be foundation, FUNCATE, have several good implemented in the context of monitoring the examples of the feasibility of this kind of work. outcomes of public actions. There are a few governmental initiatives in that direction, but none Notice that Brazil has a strong tradition in so far connected to SDI or GIS projects. software development. Although less known than Implementing effective monitoring practices, China and India, the Brazilian software industry meaningfully connected to SDI operation and develops much of the software used in Brazil, usage indicators, can have a positive effect both to including GIS applications such as SPRING, personnel and to the overall performance of the TerraView and i3Geo. The most important results system. in GIS software were achieved by INPE, through its open source GIS library TerraLib, an open- Considering the software scenario, Brazilian GIS source GIS component library used applications evolved from a few users based on internationally. The Brazilian geographic mainframe computers and expensive software to information community would greatly benefit widespread use of personal computers and from the availability of such a general, open inexpensive or free and open source software. The source GIS library. This would have a direct proliferation of GIS applications although positive impact on the use of GI in development projects in spreading the idea and increasing local and environmental monitoring and protection. It knowledge also brought lack of standardization is necessary to improve on and fully establish the and duplication of efforts. Many digital mapping basic library so that further uses and applications applications were developed at IBGE, can follow. EMBRAPA, INPE and other federal agencies, along with state level initiatives such as Minas The main source of funding for the basic Gerais and Bahia, thematic SDIs such as SMA- development of TerraLib is the Brazilian SP‟s DataGeo/IDEA, and successful local GIS government. This needs to be diversified in two such as Belo Horizonte and others. Again, the ways. First, funding from other sources would development of Brazilian computer science make the project less dependent from the yearly leveraged the development of GIS expertise and budget variations and disputes. The diversification applications. Some Brazilian universities and of uses would also help the sustainability of the institutes help end users in the development of TerraLib project. While the basic development of their GIS applications. This is done usually the library is well supported, the training of users through foundations linked to the academic and development of front-end solutions still lag behind in terms of financial support.

18 http://www.personal.psu.edu/fuf1/SDI_for_the_Amazon/ Also on funding, we realize that it might be a Workshop%20SDI%20for%20the%20Amazon.html problem for the Brazilian SDI. INDE‟s initial 45

National Data Spatial Infrastructure: The Case of Brazil budget accounted only for the first year, and long The expansion of broadband Internet access in term funding is still an unanswered question, Brazil faces two challenges: establishing effective besides counting on budgetary resources for the conditions in regulation for competition among hosting organizations. The World Bank is already major suppliers of broadband services, and funding some Brazilian SDI initiatives. Two expanding the geographic reach of broadband important SDI development projects, IDE-BA coverage. Meeting the second challenge means and DataGeo/IDEA, described in this report, are using public resources to expand collective points funded as part of a larger World Bank endowment of access, with specific actions towards remote for transportation infrastructure. It also happens areas and low income municipalities; this means that, in the past, some metropolitan GIS projects that no amount of competition can ensure have been financially supported by a share of coverage in remote and poor areas, and the plan funds for large garbage collection and treatment recommends that the government becomes projects. The history of success in Brazilian GIS involved as a part of the solution. projects with external funding is often linked to larger projects more in line with the country‟s Considering SDI access needs, the actual development goals. Funding of independent implementation of the broadband plan is an projects might lead to results that are disconnected obvious recommendation. Two main efforts need with immediate development needs of Brazil. to be funded. First, the expansion of information Nevertheless, the no charge policy enforced by and communication technologies infrastructure. In INDE and other state SDIs replicates successful parallel, as these services become available, it is GI dissemination initiatives in the past, and we see necessary to support projects that give broad no reason to change that. Internet access to the general public. This might be achieved with support for public schools and We recommend that funding should be tied to libraries. larger projects which are in line with Brazil and the World Bank‟s millennium development goals. It is necessary also to invest in initiatives (such as This strategy has the advantage of securing INDE) that promise to regulate and organize data resources for information, technology and distribution. INPE‟s Open-Data policy should planning in parallel with development initiatives, also be extended to other organizations, while thereby facilitating the assessment of the impact of supported through funding and governmental the broader project. policies. Special lines of funding for data sharing following INDE‟s recommendations should be Infrastructure is a major issue in Brazil nowadays. made available. Funding for research that Brazil has reasonable network services in the main addresses the main problems in this area, such as metropolitan areas but being a large country this semantics, network optimization for large data sets still leaves many areas that need to be addressed. distribution, user interfaces, and user requirements The high network demand of spatial data transfer should also be available. All these needs could be might also be a problem. Wide public use is combined in a single comprehensive policy, with another challenge because Internet access is two major points: (1) providing funding for data expensive for a country with a large part of its producers, conditioned to the creation of INDE- population close to the poverty line. In order to compatible and INPE-style open access data address that problem, the Brazilian government dissemination, (2) funding SDI-related research developed a national plan for broadband Internet with an emphasis on applications and realistic connection (PNBL - Plano Nacional de Banda usage scenarios. Larga). The plan proposes to give 40 million Brazilian households low-cost broadband The extrapolation of the SDI development connections by 2014. This is in line with the goals practices and institutional conditions discussed in set at the UN‟s World Summit of the Information this report to other countries is an exercise that Society, which are to have Internet access in all should take into consideration the number of communities, schools, museums, public libraries, features that make Brazil a unique country. hospitals and health centers, and all governmental Nevertheless, it is our opinion that the instances. development of a national SDI, considering its

National Data Spatial Infrastructure: The Case of Brazil

“technology, people, policies and standards” . Reinforce and value technical personnel definition, presents as the main hurdle the in IBGE and in CONCAR member “policies” part. Technology for SDI development institutions by providing opportunities for is widely available, with a prevalence of open- updating their knowledge, and source (and zero cost) software. The most establishing rewards based on important standards are being defined by ISO and performance indicators; OGC, and adopted internationally. There must, of . Improve on the connection between SDI course, be a source of qualified people to conduct and e-government through e-Ping, by the SDI. Bu t the most difficult part is achieving realizing that geographic information the kind of institutional maturity that allows public systems can be integrated in the overall e- organizations to communicate, share experiences, government strategies; obtain funding, and develop cooperative efforts . Support national software development that generate useful information. Public managers, initiatives, and proceed with the open who know the intrinsic value of detailed, correct, source “public software” policy; timely and up-to-date information to fulfill their . Establish alternative funding sources (e.g., mandates, will surely appreciate such efforts. piggyback SDI projects in larger development or physical infrastructure 8.1 Summary of recommendations projects) while keeping the no charge The recommendations embedded in the policy established in INDE‟s creation; conclusion of this report are briefly summarized . Effectively implement broadband below. expansion plans in a timely fashion; . Incentive the growth of INDE, by . Prioritize thematic, state and local SDI conditioning the funding of data development initiatives, while strongly production to the subsequent publication supporting INDE‟s geoportal and in an SDI, following all established metadata catalog; standards; . Empower IBGE and CONCAR for . Fund SDI-related research with an fostering INDE as a source for emphasis on applications and real-world geographic information generated by scenarios. multiple data producers;

National Data Spatial Infrastructure: The Case of Brazil

9. Appendices

9.1 Brazilian Government – The Executive Branch The executive branch of the Brazilian government has ministries, secretariats and councils.

Ministries  Ministry of Agriculture, Livestock and Food Supply  Ministry of the Cities  Ministry of Science and Technology  Ministry of Communications  Ministry of Culture  Ministry of Defense  Ministry of Agrarian Development  Ministry of Development, Industry and Foreign Trade  Ministry of Social Development and Fight against Hunger  Ministry of Education  Ministry of Sports  Ministry of Finance  Ministry of National Integration  Ministry of Justice  Ministry of Environment  Ministry of Mines and Energy  Ministry of Fishing and Aquaculture  Ministry of Planning, Budget and Management  Ministry of Social Security  Ministry of Foreign Affairs  Ministry of Health  Ministry of Labor and Employment  Ministry of Transports  Ministry of Tourism

Secretariats  Office of the President‟s Chief of Staff  General Secretariat  Office of Institutional Security  Secretariat of Social Communication  Secretariat of Strategic Affairs  Secretariat of Institutional Affairs  Special Secretariat for Women Policies  Special Secretariat for the Promotion of Racial Equality  Special Secretariat for the Human Rights  Special Secretariat of Ports

Councils  Cade - Conselho Administrativo de Defesa Econômica - Administrative Council for Economic Defense

National Data Spatial Infrastructure: The Case of Brazil

 CDDPH - Conselho de Defesa dos Direitos da Pessoa Humana - Council for the Defence of the Rights of the Human Person  CDES - Conselho de Desenvolvimento Econômico e Social - Council for Economic and Social Development  CGPC - Conselho de Gestão da Previdência Complementar - Council of Complementary Social Security Management  CRPS - Conselho de Recursos da Previdência Social - Council for Social Security Fund  Codefat- Conselho Deliberativo do Fundo de Amparo ao Trabalhador - Deliberative Council of the Worker Protection Fund  CMN - Conselho Monetário Nacional - National Monetary Council  Conjuve - Conselho Nacional da Juventude - National Council of Youth  Condec - Conselho Nacional de Defesa Civil - National Council for Civil Defense  Consea – Conselho Nacional de Segurança Alimentar e Nutricional - Nutritional and Food Security Council  CNPq - Conselho Nacional de Desenvolvimento Científico e Tecnológico - National Council of Scientific and Technological Development  CNE - Conselho Nacional de Educação - National Council for Education  Conselho Nacional de Esportes - National Council of Sports  Conmetro - Conselho Nacional de Metrologia, Normalização e Qualidade Industrial - National Council for Metrology, Standardization and Industrial Quality  CNPE - Conselho Nacional de Política Energética - National Council for Energy Policy  CNPS - Conselho Nacional de Previdência Social - National Council for Social Security  CNS - Conselho Nacional de Saúde - National Council of Health  CNSP - Conselho Nacional de Seguros Privados - National Council of Private Insurance  Contran - Conselho Nacional de Trânsito - National Council of Traffic  Conama – Conselho Nacional do Meio Ambiente - National Council of the Environment  Conanda - Conselho Nacional Dos Direitos da Criança e do Adolescente - National Council for the Rights of Children and Adolescents  CNDI - Conselho Nacional dos Direitos do Idoso - National Council for the Rights of the Senior Citizen

9.2 Members of CONCAR The National Cartographic Committee, CONCAR, is coordinated by a president and na executive secretary, and is composed by one representative of each of the following organizations:

 Office of the President‟s Chief of Staff  Office of Institutional Security  Ministry of Planning, Budget and Management  Ministry of Foreign Affairs  Ministry of Agriculture, Livestock and Food Supply  Ministry of Mines and Energy  Ministry of Science and Technology  Ministry of Communications  Ministry of Environment  Ministry of Defense  Ministry of National Integration  Ministry of Transports

National Data Spatial Infrastructure: The Case of Brazil

 Ministry of Agrarian Development  Ministry of the Cities  Ministry of Education  Ministry of Health  Ministry of Finance  Ministry of Justice  Ministry of Tourism  Geographic Service Directorate of the Army, Ministry of Defense  Hidrography and Navigation Directorate of the Navy, Ministry of Defense  Aeronautical Cartography Institute of the Air Force, Ministry of Defense  Brazilian Institute of Geography and Statistics – IBGE  National Association of Aerial Survey Companies (ANEA - Associação Nacional das Empresas de Aerolevantamentos)

Furthermore, CONCAR hosts regional forums, which congregate representatives from the federative units (states and municipalities). There are forums in each of the five geographic regions: North, Northeast, Central-West, Southeast, and South.

National Data Spatial Infrastructure: The Case of Brazil

10. References

ANA (2007). GEO Brazil - Water resources - Executive Summary. A. N. d. Á. (ANA). Brasília, Agência Nacional de Águas (ANA),.

ANFAVEA (2010). Anuário da Indústria Automobilística Brasileira 2010, Associação Nacional dos Fabricantes de Veículos Automotores (ANFAVEA).

ANS (2010). Informação em Saúde Suplementar, Agência Nacional de Saúde Suplementar (ANS).

Arthur, B. (1994). Increasing Returns and Path Dependence in the Economy. Ann Arbor, MI, The University of Michigan Press.

Assad, E. D. and E. Sano, Eds. (1998). Sistemas de informações geográficas: Aplicações na Agricultura (Geographical Information Systems: Agricultural Applications). Brasilia, EMBRAPA.

Barros, R. P., M. N. Foguel, et al. (2006). Desigualdade de Renda no Brasil -- Uma Análise da Queda Recente. I. d. P. E. A. (IPEA). Brasilia, IPEA.

Borges, K. A. V. and S. Sahay (2000). Learning About GIS Implementation from a Public Sector GIS Experience in Brazil. IFIP 9.4, Working Group on Social Implications of Computers in Developing Countries, Cape Town, South Africa.

Câmara, G., M. Casanova, et al. (1996). "Anatomia de Sistemas de Informação Geográfica (Anatomy of Geographical Information Systems)." from http://www.dpi.inpe.br/gilberto.

Câmara, G. and F. T. Fonseca (2007). "Information Policies and Open Source Software in Developing Countries." Journal of the American Society for Information Science and Technology 12(4): 255-272.

Câmara, G., U. Freitas, et al. (1994). A Model to Cultivate Objects and Manipulate Fields. Second ACM Workshop on Geographic Information Systems, Gaithersburg, MD, ACM Press.

Câmara, G., R. Souza, et al. (1996). "SPRING: Integrating Remote Sensing and GIS with Object-Oriented Data Modelling." Computers and Graphics 15(6): 13-22.

Câmara, G., R. Souza, et al. (2000). TerraLib: Technology in Support of GIS Innovation. II Brazilian Symposium on Geoinformatics, GeoInfo2000, São Paulo.

Câmara, G., L. Vinhas, et al. (2009). Geographical Information Engineering in the 21st Century. Research trends in geographic information science. G. Navratil. New York, Springer: 203-218. 51

National Data Spatial Infrastructure: The Case of Brazil

CEGE (2009). e-Ping - Padrões de Interoperabilidade de Governo Eletrônico. C. E. d. G. E. (CEGE). Brasília (DF): 57p. (In Portuguese).

CONCAR (2009). Perfil de Metadados Geoespaciais do Brasil (MGB), Comissão Nacional de Cartografia (CONCAR),: 194p.

CONCAR (2010). Plano de Ação para Implantação da Infraestrutura Nacional de Dados Espaciais (INDE). O. e. G. Ministério do Planejamento. Brasília: 230p. (In portuguese).

Crompvoets, J. and A. Bregt (2006). Worldwide Developments of National Spatial Data Clearinghouses. 9th International Conference on Global Spatial Data Infrastructure, Santiago, Chile.

Crompvoets, J., A. Bregt, et al. (2004). "Assessing the worldwide developments of national spatial data clearinghouses." International Journal of Geographic Information Science 18(7): 665-689.

Daratech (2003). GIS Markets and Opportunities 2003 Survey. Cambridge, MA, Daratech Inc.

Dasgupta, P. and P. David (1994). "Toward a New Economics of Science." Research Policy 23: 487-521.

Davis Jr, C. A. (2002). Intercâmbio de Informação Geográfica: A Experiência de Padronização e Cooperação em Minas Gerais. Dados Geográficos: aspectos e perspectivas. G. C. Pereira and M. C. F. Rocha. Salvador (BA), Rede Baiana de Tecnologias da Informação Espacial (REBATE): 43-54.

Davis Jr., C. A. (1993). Address Base Creation Using Raster-Vector Integration. URISA 1993 Annual Conference, Atlanta, Georgia, URISA.

Davis Jr., C. A. (1995). Commercialization of Geographic Information (In Portuguese). Revista FatorGIS, Ed. FatorGIS. 3(10): 45.

Davis Jr., C. A. (1995). Interchange of Geographical Information (in Portuguese). Belo Horizonte, PRODABEL.

Davis Jr., C. A. and F. T. Fonseca (2006). "Considerations from the Development of a Local Spatial Data Infrastructure." Information Technology for Development 12(4): 273-290.

Davis Jr., C. A. and C. A. Zuppo (1995). Updating urban geographic databases: methodology and challenges. Geographic Information Systems / Land Information Systems (GIS/LIS) 1995 Annual Conference, Nashville (TN), USA.

EMBRAER (2010). Embraer em Números, Empresa Brasileira de Aeronáutica (EMBRAER).

National Data Spatial Infrastructure: The Case of Brazil

FAO (2010). FAOStat (online database), U. N. Food and Agriculture Organization (FAO).

FEBRABAN (2010). Setor Bancário em Números, Federação Brasileira de Bancos.

Fileto, R., C. B. Medeiros, et al. (2003). Using domain ontologies to help track data provenance. XVIII Brazilian Database Symposium, Porto Alegre, SBC.

Fonseca, F. (1993). GIS for a Two-Million People City in Three Years. URISA 1993 Annual Conference, Atlanta, Georgia, URISA.

Fonseca, F. T. (2008). Spatial Data Infrastructure. Encyclopedia of GIS. S. X. Shekhar, Hui London ; New York, Springer.

FUNAI (2010). As Terras Indígenas, Fundação Nacional do Índio (FUNAI).

IBGE (2008). Projeção da população do Brasil por sexo e idade -- 1980-2050, revisão 2008. Estudos & Pesquisas - Informação Demográfica e Socioeconômica. Rio de Janeiro, Instituto Brasileiro de Geografia e Estatística (IBGE).

IBGE (2010). Brasil em Síntese (Web site).

IBGE (2010). Paises@ (online database).

IBGE (2010). Pesquisa Nacional por Amostragem de Domicílios 2008, Instituto Brasileiro de Geografia e Estatística (IBGE).

IBGE (2010). Sistema de Contas Nacionais 2003-2007.

IBGE (2010). Sistema Nacional de Índices de Preços ao Consumidor, Instituto Brasileiro de Geografia e Estatística (IBGE).

IBRAM (2010). Produção Mineral Brasil, Instituto Brasileiro de Mineração.

INPE (2010). Estimativas Anuais 1988-2009 da Taxa de Desmatamento Anual, Instituto Nacional de Pesquisas Espaciais (INPE).

IPEA (2010). Dimensão, evolução e projeção da pobreza por região e por estado no Brasil. Comunicados do IPEA, Instituto de Pesquisa Econômica Aplicada (IPEA).

National Data Spatial Infrastructure: The Case of Brazil

King, C. (2009). Brazilian Science on the Rise. ScienceWatch.com, Thomson Reuters.

Kintisch, E. (2007). "Carbon emissions: improved monitoring of rainforests helps pierce haze of deforestation." Science 316(5824): 536-537.

Magalhaes, G. and E. Granemman (2005). A Survey of Geospatial Market in Brazil. São Paulo, GITA Brasil: unpublished work.

Marinho, S. M. V. (1998). Proposta de um Ambiente para Utilização Compartilhada de uma Base de Dados Geográfica de Âmbito Estadual. Departamento de Ciência da Computação. Belo Horizonte (MG), Universidade Federal de Minas Gerais. Master's Dissertation.

Mattos, A. C. P. (2003). Utilização da Internet para Divulgação de Informações Geográficas no Âmbito do Governo do Estado da Bahia. . Informação Geográfica: Infra-Estrutura e Acesso. G. C. Pereira and M. C. F. Rocha. Salvador (BA), Quarteto/UFBA: 181-187.

MC (2010). Um Plano Nacional para Banda Larga -- Resumo Executivo, Ministério das Comunicações (MC).

MME (2010). Resenha Energética Brasileira- Exercício de 2009 (preliminar), Ministério das Minas e Energia.

Mowery, D., Ed. (1996). The International Computer Software Industry: A Comparative Evolution of Industry Evolution and Structure. New York, NY, Oxford University Press.

Onsrud, H. (1998). "Survey of national and regional spatial data infrastructure activities around the globe." Proceedings of Selected Conference Papers of the Third Global Spatial Data Infrastructure Conference.

Pereira, G. C., C. A. Davis Jr., et al. (2009). Establishing a sub-national SDI in Bahia State (Brazil) – its limits and possibilities. UDMS 2009 -- 27th Urban Data Management Symposium. Ljubljana, Slovenija.

Pereira, G. C. and M. C. F. Rocha (2002). Spatial Data Infrastructure: a Brazilian case. UDMS‟02 - 23rd Urban Data Management Symposium, Proceedings. Prague, Czech Republic.

Pereira, G. C. and M. C. F. Rocha (2003). Informação Geográfica no Estado da Bahia: modelos e cenários alternativos para a sua sustentação. Informação Geográfica: Infra-Estrutura e Acesso. G. C. Pereira and M. C. F. Rocha. Salvador (BA), Quarteto/UFBA: 13-42.

Pereira, G. C. and M. C. F. Rocha (2004). Designing a Spatial Data Infrastructure: The Bahia State Case. UDMS‟04 – 24th Urban Data Management Symposium. Chioggia, Italy.

Rocha, M. C. F. and G. C. Pereira (2004). A Geoportal as a Strategy to Build the Spatial Data Infrastructure in Bahia State – Brazil. UDMS‟04 – 24th Urban Data Management Symposium. Chioggia, Italy.

National Data Spatial Infrastructure: The Case of Brazil

Silva, T. E. P. P. and M. V. Ottoni (1995). The importance of cartography for the success of GIS deployment in the city of Belo Horizonte (in Portuguese). XVII Brazilian Cartographic Conference, Salvador (BA).

The World Bank (2009). Brazil at a Glance, The World Bank.

The World Bank (2010). Gross Domestic Product 2009 (PPP).

UNDP (2010). Human Development Report (Summary): Overcoming Barriers: human mobility and development, United Nations Development Programme.

National Data Spatial Infrastructure: The Case of Brazil

About infoDev

infoDev is a global development financing program among international development agencies, coordinated and served by an expert Secretariat housed at the World Bank Group, one of its key donors and founders. It acts as a neutral convener of dialogue—and as a coordinator of joint action among bilateral and multilateral donors—supporting global sharing of information on ICT for development (ICT4D), and helping to reduce duplication of efforts and investments. infoDev also forms partnerships with public and private sector organizations who are innovators in the field of ICT4D. infoDev is housed in the Financial and Private Sector Development (FPD) Vice Presidency of the World Bank Group.

For additional information about this study or more general information on infoDev, please visit www.infodev.org/publications.