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Methods for Development of an Urban Hazard Information Infrastructure in Windhoek

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Methods for Development of an Urban Hazard Information Infrastructure in Windhoek Manage Data - Manage Hazards: Methods for development of an Urban Hazard Information Infrastructure in Windhoek Maura Ewa Merson February, 2004 Manage Data - Manage Hazards: Methods for development of an Urban Hazard Information Infrastructure in Windhoek by Maura Ewa Merson Thesis submitted to the International Institute for Geo-information Science and Earth Observation in partial fulfilment of the requirements for the degree in Master of Science in Geo-information Management, Urban Management. Degree Assessment Board Thesis advisor Lorena Montoya, Chris Paresi Thesis examiners Chair: Prof. Ir. Paul van der Molen External Examiner: Dr. Arnold Bregt INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION ENSCHEDE, THE NETHERLANDS Disclaimer This document describes work undertaken as part of a programme of study at the International In- stitute for Geo-information Science and Earth Observation (ITC). All views and opinions expressed therein remain the sole responsibility of the author, and do not necessarily represent those of the institute. Abstract This work guides through the process of introduction of the Urban Hazard Information In- frastructure (UHII) in Windhoek, Namibia, in the core research, and sets up the framework for its development based on the different experiences coming from case studies. The investigation of a demand and potentials for UHII and its core element UHEMIS (Urban Hazard and Emergency Management Information System) is done after an analysis of UHII re- quirements in the different institutional environment of Regionale Brandweer Twente (the Nether- lands) in the preliminary study. The identification of bottlenecks in urban hazard data manage- ment in different organisational environments of case studies and their implications for decision- support by UHII in the framework of integrated Urban Hazard Management (UHM) was pre- sented. The As-Is Spatial Information Management Reference Model (RSIMM) is created for the preliminary study and used as a reference to the Case-Specific Spatial Information Management Model (CSIMM) for the City of Windhoek (CoW), the core research, where young, dynamic institutions face financial, structural, legal and technical uncertainties. As a result the institutional and technical framework for spatial data exchange and sharing in Integrated UHMis proposed. The combined soft-structured methodology with the use of Critical System Approach for analysing demands and requirements for development of UHII in Windhoek is developed. The reference to the lessons learned from the case studies is made and the guidance through required policies and strategies supporting UHII development is presented. The Urban Hazard and Emergency Management Information System (UHEMIS) development is chosen to initiate UHII introduction. It is meant to constitute a data and metadata management base for decision-making in spatial development control, risk assessment and emergency response plan- ning. The UHII and UHEMIS models are being designed next in this research. A framework for co-operation between the CoW divisions and external spatial data providers is advised be established to supply UHEMIS and UHII with accurate, reliable and up-to-date spatial data. Keywords Information Infrastructure, integrated Urban Hazard Data Management, Critical System Ap- proach in system development i Contents Abstract 1 List of Figures 9 List of Tables 11 Acknowledgements 13 1 Spatial Data Infrastructure for Decision Support in Urban Hazard Management 15 1.1 Research context . 15 1.2 Research Motives . 16 1.2.1 Background Information for Case Studies . 17 1.2.1.1 Spatial Information Management in the Netherlands . 17 1.2.1.2 Spatial development and urban hazards in Windhoek . 18 1.3 Research Focus . 19 1.4 Research Problem . 19 1.5 Research Objectives . 19 1.5.1 Main Research Objectives . 20 1.5.2 Specific Research Objectives . 20 1.6 Research Questions . 21 1.6.1 Main Research Questions . 21 1.6.2 Research Subquestions . 21 1.7 Research Methods . 21 1.7.1 Two-tiered research structure . 21 1.7.1.1 Preliminary research . 22 1.7.1.2 Core research . 22 1.8 Thesis overview . 23 2 Spatial Information and Urban Hazards 25 2.1 Geographic Information - Concepts, Use and Management . 25 2.1.1 From Geographic Information Systems to Spatial Data Infrastructures in decision-support . 27 2.1.2 Spatial Data Infrastructures - Concepts and role . 29 2.1.2.1 SDI for Data Management and Decision Support . 29 2.1.3 Organisational structures, spatial information technologies and change . 30 2.1.4 Development of SDI and its diffusion in organisations . 32 2.2 Disaster Management, Hazard Management and GI technology . 33 2.2.1 Hazards, risks, emergencies, disasters - main concepts . 33 2.2.1.1 Hazards . 34 2.2.1.2 Hazards and risks in the scope of this research . 35 2.2.1.3 Dealing with disasters and hazards . 36 2.2.2 Urban Hazard Management - integrated approach . 37 3 Contents 2.2.2.1 Risk assessment in the context of spatial development . 37 2.2.2.2 Emergency planning in preparedness measures . 38 2.2.3 Spatial Information for support in Hazard Management . 38 2.2.3.1 Data requirements for Urban Hazard Management and Emergency Planning . 38 2.2.3.2 Spatial Data Infrastructure for Disaster Management . 40 2.3 Dilemmas of systems development - choice of methodologies . 40 2.3.1 Philosophy, Social Sciences and System Development - paradigms and meth- ods ...................................... 40 2.3.2 System development approaches and methodologies in an organisational context . 44 2.3.2.1 Organisational problem or/and information management problem? 45 2.3.3 Critical systems thinking and critical social theory . 49 3 Draft chapter 3: Urban hazard data management and requirements analysis 53 3.1 Urban Hazards Data Management-driven potentials for UHII development . 56 3.1.1 Demand for improved decision-support as the UHII potential . 57 3.1.1.1 Demand for UHM decision-making support in Twente Region, the Netherlands . 58 3.1.1.2 Demand for UHM decision-making support in Windhoek, Namibia 60 3.1.2 Demand for improved access to- and sharing of spatial data . 62 3.1.2.1 Demand for access to- and sharing urban hazard data in the Nether- lands . 64 3.1.2.2 Demand for access to- and sharing urban hazard data in Windhoek 65 3.2 Analysis of stakeholders and institutional background as a base for methodology development . 69 3.2.1 Target organisations - identification and characteristics analysis . 73 3.2.1.1 Target authorities in the initiative of risk mapping in Twente Re- gion . 74 3.2.1.2 Municipal Fire Brigades and the City of Windhoek . 77 3.2.2 External stakeholders’ environment characteristics . 79 3.2.3 Implications of institutional background for UHII introduction and require- ments analysis methods . 79 3.2.3.1 Risk data management requirements identification in a strong in- stitutional environment of Twente . 79 3.2.3.2 Lessons learned for Urban Hazard Information Infrastructure of a weak institutional environment of Windhoek . 80 3.3 As-Is Urban Hazard Data Management . 80 3.3.1 Access to national, regional and municipal hazard data in the Netherlands - the scene . 81 3.3.1.1 National risk analysis and mapping initiative, the Netherlands . 81 3.3.1.2 ”AS-IS” situation of Spatial Information Management for support in urban hazard management . 82 3.3.2 Access to framework and hazard data in Namibia . 84 3.3.2.1 ”AS-IS” situation of Spatial Information Management for support in urban hazard management, Windhoek . 85 3.4 How to successfully analyse requirements for a hazard information infrastructure - theoretical underpinning. 88 3.4.1 Soft or hard, positivist or interpretative, quantitative or. - mixed methods dilemmas . 89 3.4.2 Implications of organisational analysis for methods applied . 90 3.5 Methodology model for UHII development in Windhoek, Namibia . 94 3.5.1 Global view - Two-tiered research and Critical Systems Approach . 94 4 Contents 3.5.1.1 Literature Review - how to detect problem areas in UHII develop- ment? . 94 3.5.1.2 Preliminary study - ”As-Is” of risk data management in Twente . 94 3.5.1.3 Core research - the scene, the actors and the problems . 94 3.5.1.4 Reference cases - functional study for Critical Windhoek assess- ment . 95 3.5.1.5 Global methodology model . 95 3.5.2 Methodological phases - detailed approach . 95 3.5.2.1 Preliminary study - requirements and tools applied . 95 3.5.2.2 Preliminary study - As-Is situation modelling . 96 3.5.2.3 Reference cases analysis - requirements and outcomes . 96 3.5.2.4 Core research - data, knowledge and tools required . 96 3.5.2.5 Core research - Introduction of UHII to Windhoek environment - SDI concepts and demand . 97 3.5.2.6 Core research - identification of internal and external stakeholders 97 3.5.2.7 Core research - As-Is situation analysis . 98 3.5.2.8 Core research - Organisational characteristics analysis . 98 3.5.2.9 Core research - Methodology choice . 98 3.5.2.10 Core research - SWOT analysis . 98 3.5.2.11 Core Research - Structured UHII and UHEMIS requirements anal- ysis . 98 3.5.2.12 Critical System Approach - validation of the structured require- ments analysis . 98 3.5.3 Requirements Analysis Methodology - Summary of a practical execution of the combined methods . 99 4 From the lessons learned to system modelling - the Critical Approach to Urban Haz- ard Information Infrastructure for Windhoek 101 4.1 Towards structured management of spatial data - lessons learned from reference cases 103 4.1.1 Global-domain approaches in SDI development . 103 4.1.1.1 Dutch experiences in Spatial Data Infrastructure development . 104 4.1.1.2 Northrhine Westphalia Geo-Spatial Data Infrastructure . 105 4.1.1.3 Namibian initiative for Environmental/Spatial Data Infrastructure 106 4.1.2 Experiences in hazard management-oriented SDI development .
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