A CENSUS ON THE SPATIAL DATA AVAILABILITY AND SERVICES ON THE INDONESIAN LOCAL GOVERNMENT WEBSITES

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1 A CENSUS ON THE SPATIAL DATA AVAILABILITY AND SERVICES ON THE INDONESIAN LOCAL GOVERNMENT WEBSITES Heri Sutanta*, Yunanta Daniswara, Erna Kusumawati Research Centre for Spatial Data Infrastructure Development, Universitas Gadjah Mada Department of Geodetic Engineering, Faculty of Engineering, Jl. Grafika no. 2, Yogyakarta *Corresponding author: herisutanta@ugm.ac.id ABSTRACT This paper presents the result of a census to assess the use local government website in Indonesia for spatial data dissemination. The census is a continuation of the similar survey conducted in The local government being surveyed were provincial, city and district level covering the availability of any types of maps, internet GIS and geo-portal in all of the official websites and their sub-domains. Maps were available in the websites of 253 districts/cities and 25 provinces, while internet GIS were only found on four provinces and 16 districts/cities. In total, there are 1,694 maps found in all of the local government websites. These findings reveals that the use of internet for spatial data dissemination on the Indonesian local government websites can be considered low. Nonetheless, many improvements have been made compared to the findings of similar survey conducted in 2008 Keywords: maps, webgis, availability, local government, INTRODUCTION The national policy on e-government in Indonesia has been officially established for ten years. In 2003, the President issued a Presidential Decree no. 3 on the National Policy and Strategy for the Development of e-government (GoI, 2003). This decree is inline with the increase use of internet in Indonesia, as shown by The Association of Indonesian Internet Service Provider-APJII (APJII) data through their surveys. They estimated that by the end of 2007, the number of internet users reach 25 million (APJII, 2008) and rose rapidly in 2012 to 60 million (APJII, 2013). At the first wave of the implementation of e-government, many local governments who were new to internet, used unofficial domain name for their official website. The situation has been addressed by Ministerial Regulation of 28/PER/M.KOMINFO/9/2006 on the use of.go.id domain name for official government websites. For provincial government, the domain name should be while for district/city level should be (district) and (city). Map is one important information that is essential in local government activities and websites. It has many functions, such as depicting geographical location, showing development planning, locating tourism object, and revealing disaster prone areas. However, as stated by Sutanta (2008), the use of local government websites for spatial data dissemination was very low. There were two important findings in the 2008 survey: firstly, not all local governments have operational websites, and secondly, less than half of the district/city display maps on their websites, even the simplest one. With regard to this situation, this research was conducted to to portray recent development and analysis changes and improvement after five years. METHOD The main source of information on the number of provinces and districts/cities and their websites address is the websites of the Department of Home Affairs ( In this research, 33 provincial websites and 497 district/city websites were surveyed. Province Kalimantan Utara, which was established in October 2012 was excluded from the list because they still in the very early development having limited the required physical infrastructures. There was no communication with the administrator of the websites. All the websites were checked manually starting from the main websites to the their sub-domains, who were usually

2 maintained by local government agencies. The survey covered three aspect: whether local government has an official websites, types, readibility and completeness of the maps and whether they have webgis and assess the quality. All maps found on the official websites were saved or downloaded for further analysis. The maps were then collated and classified according to their origin, file format/types, and types of maps. For WebGIS, they were evaluated online according to the pre-defined criteria. On the map side, the evaluation were conducted with the following criteria: a. File format and types. Numerous file format might be used for presenting map on the website, including.jpg,.png,.pdf,.wmf and flash. The file size might be differ as well. Three different types of map presentation were checked: static map displayed on the webpage, static map as downloadable file and dynamic map. b. Theme. Classify the maps based on their theme, which include: location, administrative, land use, tourism, regional profile, protected zone, and spatial plan map. c. Readibility. Here the maps were evaluated whether they can be read, difficult to be read or unreadable. Factors contributed to readibility include: file size, scale and size of the image. d. Cartographic element. To check the completeness of cartographic element on the maps displayed, such as north arrow, legend, coordinate and projection system, datum, grid, data source and map identity. Similarly, for webgis, they were evaluated based on the following criteria: web address, platform, interface and completeness. The web address is important as it show the compliant to the Ministry of Communication and Information Regulation on the government domain. WebGIS platform was classified according to their easeness for the user (whether or not requires plugin), interactivity and richness of functionalities. The number of menus in the interface was evaluated to assess their functionalities. Data completeness is essential for determine how many data types disseminated to the public. Results from the survey and analysis were then presented in table and visualized in maps. Maps were presented as provincial and district/city level entity. RESULTS AND DISCUSSION Map Availability There was no homogenous way in presenting the maps on the local government websites. Three commonly methods of putting the maps are: as main menu or icon in the homepage, inside the page of sub-menu and as downloadable files provided by links. The most commonly found method was to put the web on the page of the sub-menu. The main menu containing sub-menu with maps were Sekilas or Selayang Pandang or Profil. The maps were located under the sub-menu of Peta Wilayah or Peta Administratif or Geografis. This research surveyed 33 provinces and 497 districts/cities in Indonesia. The number of districts/cities being surveyed rose from 442 in 2008 to 497 in All provinces have official websites, although two provincial websites (Sumatra Utara and Maluku Utara) could be reached at the time of the survey. Of the 497 districts/cities, 454 of them (91.3%) have operational websites. This number is significantly higher that the situation in 2008 where only 88% have websites (Sutanta, 2008). The distribution of districts/cities surveyed along with the findings is displayed in Table 1. The total number of maps found in the provincial websites were 470 maps, while in the districts/cities were 1,224 maps.two provincial websites were not availabe for the survey, as they cannot be opened. Districts/cities which are now part of newly established province of Kalimantan Utara were put under their former province of Kalimantan Timur. The number of maps found on the district/city level was increased from 2008, in which only 1,080 maps were found. However, the addition of 144 maps in five years is considered very low. On the average, only 25 new maps added every year for 497 districts/cities. This insignificant addition seemed to not reflect the impact of the enactment of Law on Geospatial Information in 2011 as well as the intensive efforts from central government. On the average each province has 14 maps, however the distribution was not even. Province Aceh

3 and Gorontalo were on the top list with 130 and 112 maps, respectively. There was five provinces who do not put single maps on their websites. Seven provinces only have one maps, while seven others have five maps or less. Table 1. Maps in provincial and district/city official websites No Province No. of District/ City Number of maps Provi nce District/ City File types (displayed maps) jpg png gif pdf bmp wmf dyna mic 1 Aceh Sumatera Utara Sumatera Barat Riau Jambi Sumatera Selatan Bengkulu Lampung Kep.Bangka Belitung Kepulauan Riau DKI Jakarta Jawa Barat Jawa Tengah DI Yogyakarta Jawa Timur Banten Bali Nusa Tenggara Barat Nusa Tenggara Timur Kalimantan Barat Kalimantan Tengah Kalimantan Selatan Kalimantan Timur Sulawesi Utara Sulawesi Tengah Sulawesi Selatan Sulawesi Tenggara Gorontalo Sulawesi Barat Maluku Maluku Utara Papua Papua Barat National For the district/city level, there were maps found, consisted of static maps and 30 dynamic maps. In addition, 48 districts/cities have a link to or develop a simple Google Maps API. Similar to the situation at provincial level, the distribution of district/city who own maps on their

4 websites was also uneven. 244 districts/cities (49.1%) did not have any single maps on their official websites. 202 districts/cities (40.6%) presented 1 to 5 maps on their websites, while 19 districts/cities (3.8%) presented 5 to 10 maps and 32 districts/cities (6.3%) had more than ten maps. Tangerang City with 86 was on the first rank, followed by District of Bantul and Pesisir Selatan with 49 and 45 maps, respectively. This figure indicate that most of the District or Cities paid little attention to the importance of maps as a mean for presenting location-based information to their citizen. As for the file format, JPG dominate the number, which were found to be used by 879 maps, followed by PDF (145 maps), WMF (68 maps), PNG (57 maps), GIF (43 maps) and BMP (2 maps). The file size is from 2 kb to 10 MB. Some of the maps were not specifically designed for web visualization, as they were made by scanning printed maps. Others were export version of the maps in GIS software. The choice of the file format might be related to the simplicity in putting them on the webpage and on the available maps on their disposal. Most of the maps were not accompanied by higher resolution with clearer information ones. PDF type maps were found as downloadable maps in the spatial planning theme. Map Theme and Readibility Maps at the provincial and district/city level have various themes and subsequently were classified into seven categories: location, administrative, land use, profile, tourism, protected areas and spatial plan maps. Table 2 list map themes and readibility. Administrative maps were found to be the largest, followed by spatial plan and profile maps. Administrative and location maps were provided to depict their location relative to neighbouring districts/cities and sub-district/city boundary. On the readibility aspect, 50% of the maps were easily read, while others were difficult or even non readable. Example of non readable maps is provided in Figure 1. Figure 1. Example of non readable maps. Both maps in Figure 1 are presented in their original size. Map on the left has a size of 184x153 pixel with 11.7 KB in file size. Map on the right has a size of 335x KB in file size. Both map were intended to give an overview of the location of the repective district, however their presentation are almost meaningless. They cannot be read and there were no link to higher resolution map.

5 Table 2. Types of maps and their readibility. No Province No. of District/ City Loc Adm Land use Types of maps Prof Tour Protd Spatl Plan Readibility NR DR R 1 Aceh Sumatera Utara Sumatera Barat Riau Jambi Sumatera Selatan Bengkulu Lampung Kep.Bangka Belitung Kepulauan Riau DKI Jakarta Jawa Barat Jawa Tengah DI Yogyakarta Jawa Timur Banten Bali Nusa Tenggara Barat Nusa Tenggara Timur Kalimantan Barat Kalimantan Tengah Kalimantan Selatan Kalimantan Timur Sulawesi Utara Sulawesi Tengah Sulawesi Selatan Sulawesi Tenggara Gorontalo Sulawesi Barat Maluku Maluku Utara Papua Papua Barat National Note: Loc : Location map Adm : Administrative LU : Land use Prof : Profile Tour : Tourism Protd : Protected areas Spatl Plan : Spatial plan NR : non readable DR :difficult to read R : readable At the provincial level, 470 maps were found with profile maps contribute to 36.8% followed by spatial plan maps and protected areas maps which consists of 16.8 % and 16.2 %, respectively. Unlike maps at the district/city level, most maps at the provincial level were readable (82.77%). Therefore,

6 only 17.33% of the maps that were difficult to read or non readable. From this, it can be inferred that the quality of the maps at provincial level were higher than those of district/city level. The readibility of maps available from both level of government depends on the following factors: scale, coverage, information content, file size and the use of visual variable. Except from the downloadable map in the PDF form, all other maps exhibit deficiency in readibility aspects. The scale was too small for large areas, the coverage is too wide for small size image map, the information content is too numerous. The file size was also too small, possibly to increase viewing speed by reducing file size. Visual variables in some maps were also appeared inappropriate, such as the use of big symbol that overshadow other information. Another aspect evaluated in this research was on the completeness of the cartographic elements. It consists of the following components: title, scale, north arrow, projection system, coordinates/grid, legend, data source, and information on who made the map. The maps presented in the local government websites do not necessarily contain all those elements, although it might be better if they do. For example, a simple map providing a location reference of a certain district with respect to its neighbours might not have projection system information attached. It still can be used without a risk of giving misleading information (Sutanta, 2008). Map title might not be put on the file, as the title may be found on the internet link or on the webpage itself. However, map title was the element that found largest, on 808 maps. Scale was found 646 maps, north arrow on 740 maps, projection system on 145 maps, coordinate system/grid on 535 maps, legend on 765 maps, information on data source on 426 maps and information on the producer on 245 maps. WebGIS The number of webgis found on provincial and district/city level were far less compared to maps. Only four provinces and 16 districts/cities have webgis on their official websites. The number of province own webgis is only increase by one, and only four for district/city. From four provinces, there were five webgis sites since Province Aceh has two webgis, one is maintained by Bappeda (Regional Development Planning Agency) and Dishubkom (Agency for Transportation and Communication). With regard to the domain, only two using *.go.id domain, others using.net and.com. At the district/city level, 11 using.go.id domain, four using.com and one using.info. Figure 2 illustrate the webgis of the District of Banjar in Kalimantan Selatan. Figure 2. WebGIS of the District of Banjar, Kalimantan Selatan. Numerous webgis platform were used, but mostly Map server. The use of Map Server enable the development of rich functionalities and interactivity. Further, it is an open source platform which can be obtained for free. There is no proprietary server used by the 20 local governments. The detailed

7 information on the webgis is given in Table 3. Table 3. Characteristics of the WebGIS No. District/City Maps Interaction Province Maps Interaction 1 Sleman-D Aceh Banda Aceh-C 35 6 DKI Jakarta Bengkalis-D 2 15 Jawa Barat Siak-D 4 7 DI Yogyakarta Sungai Penuh-D Ogan Komering Ilir-D Lampung Timur-D Klaten-D Sukoharjo-D Salatiga-C Majalengka-D Malang-C Trenggalek-D Banyuwangi-D Pontianak-D Banjar-D 6 3 Discussion This research is a continuation of the similar research conducted in In the beginning, it was anticipated that there would be some significant increase in the number of maps and webgis at the local government level. This optimism was founded on the fact that there was enactment of Law on Geospatial Information in 2011 which praised by many stakeholders. Further, in the last two years, the Geospatial Information Agency was working hard to develop local spatial data infrastrucure as well providing technical assisstance throughout the country. In addition, five years is rather long to make significant improvement realised. However, the expected improvement was only partially occured. Therefor, the main conclusion of Sutanta (2008) is still valid. The situation of too little information controlled by too few people (O Looney, 2000) is still exist. Only limited information were shared to the public. The improvement in ICT infrastructure in local government offices, the higher rate of internet penetration as well as higher internet literacy among government official did not materialised in better use of internet use for spatial information dissemination through maps and webgis. There seemed to be lack of coordination among provincial and district/city level government. District/city level government who has good maps or webgis on their official websites does not necessarily means that their provincial superior also performing well, and vice versa. Building webgis application or disseminating maps looked like a personal activity of staff or group of staff who are tech savy which was not based on directive from local government policy. The size of the district/city, their distance to the internet centre and their relative wealth did not seem to correspond to their performance on spatial information dissemination. This situation is differ from the finding of Weltevreden et al., (2008) who found that retailer in the Netherlands big cities tend to do better in internet adoption compared to their counterpart in small cities. Developing partnership among local government agencies at one level and among different level is one of the key success in improving the current situation. It might later lead to the improvement in local Spatial Data Infrastructure McDougall et al (2009), which will new dimension to the spatiallyenabled government.

8 CONCLUSION This paper presents the finding of a comprehensive cencus to all websites of the local government, province and district/city level, in Indonesia. The findings reveal that, although there were increase in the number of maps available as well as webgis provision, the increase is insignificant. There seemed to be a disconnection between the effort of central and local government. Technical assisstance have been provided considerably, but monitoring and evaluation activities need to be improved. Comprehensive analysis need to be conducted to find out what are the impediments and finding the remedy. An index to show the status of each local government need to be developed in order to appropriately providing assisstance to those who need most and reward for those who perform well. REFERENCES [1] APJII, 2008, Statistik APJII Updated Des 2007, accessed 28 November [2] APJII, 2013, BPS-APJII Kerjasama Riset Penggunaan Internet, accessed 15 September Nov [3] Government of Indonesia, Presidential Decree no. 3 on the National Policy and Strategy for the Development of e-government. [4] McDougall, K., Rajabifard, A., Williamson, I., 2009, Local Government and SDI Understanding their Capacity to Share Data, Nederlandse Commissie voor Geodesie Netherlands Geodetic Commision 48. [5] O Looney, J., 2000, Beyond Maps: GIS and Decision Making in Local Government, ESRI Press. [6] Peraturan Menteri Negara Komunikasi dan Informasi No. 28/ 2006 tentang Penggunaan Nama Domain go.id untuk Situs Web Resmi Pemerintahan Pusat dan Daerah. [7] Sutanta, H, 2008, An Evaluation on Spatial Data Dissemination Using Internet in Indonesia, Jurnal Ilmiah Geomatika Vol. 14 No.2 pp [8] Weltevreden, J.W.J., et.al., 2008, The Geography of Internet Adoption by Independent Retailers in the Netherlands, Environment and Planning B: Planning and Design, Vol.35, pp