Country Case Studies Norway- The Norwegian national spatial data infrastructure improve risk management and of disaster resilience

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1 Country Case Studies Norway- The Norwegian national spatial data infrastructure improve risk management and of disaster resilience Arvid Lillethun Norwegian Mapping Authority Land Mapping Division Paper prepared for presentation at the 2018 WORLD BANK CONFERENCE ON LAND AND POVERTY The World Bank - Washington DC, March 19-23, 2018 Copyright 2018 by author(s). All rights reserved. Readers may make verbatim copies of this document for non-commercial purposes by any means, provided that this copyright notice appears on all such copies.

2 Abstract The Norwegian Spatial Data Infrastructure (NSDI) is well developed, with 600 active partner organisations. It supports sustainable growth in the private sector and public services across sectors and levels. Risk management is a particular area of focus and use. Involvement and trust: Broad use depend on trust to data and solutions. We involve sectors, municipalities and the private industry. Distributed responsibilities: Each organization offer data according to agreed standards. Timeline: Development of a well-working NSDI takes time. Norway has a 25 years history. Standardization: Both ISO, OGC and national standards are essential for easy data flows. Cost-sharing financial arrangements. Norway has an interesting model where national and municipal stakeholders do joint funding of data capture and management. Geoportal: The national geoportal is an important focal point for access to data. Legislation - The Geodata Act and the open data policy has resulted in substantial increase in easy accessible data. Key Words: disaster, geospatial, Norway, SDI, resilience

3 1: Introduction and context Norway has 5 million inhabitants, distributed in 18 counties and 422 municipalities. Norway has km² land territory, and about 2 million km² sea territory. Populations is primarily located to numerous smaller cities and towns, most of the along the coast. Disasters in Norway may be caused by land slides, flooding, avalanches, storms, oil spills or other incidents. However, Norway do not have major problems of hazards, partly because of the climate, environmental and socio-economic situation, but in addition because the aim of building resilience to disasters have been a policy for decades. Major issues in the civil protection policy is to offer emergency services, offer secure registers and databases in the civil sector, offer meteorological services and environmental emergency response to pollution, oil spill and nature hazards, monitor situations of floods, land slides, storms etc, secure supplies of food and fuel, drinking water and sewage handling, power, electronic communication, secure a well-working transport system and secure of financial services. The country has a well-developed public sector. Spatial data are offered from many public organisations. The NSDI supports sustainable growth in the private sector as well as public services in most sectors and levels of society. Concerning, property information: There are 3 million properties, new properties per year and 1,6 million property transactions per year. Information from the NSDI is widely used by the different actors on the crisis management scene. 2: NSDI charachteristics - land and geospatial information Land administration systems Norway has a central system of land administration, run by the Norwegian Mapping Authority. It comprises three parts; the cadaster with land parcel information, the building register and the address register. Each municipality is to maintain the register locally. Data is automatically stored in the central database. The quality of the data is good, with some exceptions. There is a project to increase coverage in the address register, as information still is lacking in some municipalities. Similarly, there are activities to update content in the building register. Concerning the land parcel register the coverage is good. A concern is smaller municipalities lacking resources for updating. The land administration information is offered through the NSDI as spatial data with incorporated attribute information. There are online services offering online access to both parcels, buildings and addresses. The use of the data is widespread in all sectors, including the organisations involved in disaster management. The national spatial data infrastructure NSDI The Norwegian Spatial Data Infrastructure (NSDI) is well developed. The NSDI supports sustainable growth in the private sector as well as public services in most sectors and levels of society. Some characteristics in the positive development are: Long timeline: Development of a well-working NSDI takes time. Norway has a 25 years history in standardization, stakeholder involvement etc.

4 Involvement and trust: Both in standardization and general NSDI work there is a broad involvement of sectors, municipalities and the private GI sector. This gives better acceptance when standards are to be implemented. It is essential to build trust among the different public bodies through co-operation. Distributed responsibilities: Different sector organisations are responsible to offer data according to agreed standards. It is important to respect each others duties when building the NSDI. The importance of standardisation Norway has a 30 years history of national geospatial standards. Both ISO and OGC standards with additional national standards are important. National standardisation on formats and data models and feature catalogues have been essential for easy data flows. This allows e.g. different municipalities to implement similar data structures. Compared to many other countries the national standards have a broad acceptance among all municipalities, many national organisations and private industry. Particularly there is a broad use of national data product specifications and the national feature catalogue, and this makes data fit to the Norwegian situation. Most use of the data is within the national borders. Some of the international specifications are too general or are not covering the user needs in Norway. Dissemination and the role of the national geoportal The national geoportal is an important focal point. It serves information about what s available as data for download, data as web services/apis and have tools and functions needed for documentation, validation, registration, upload etc. It is of high importance that users can trust the services being offered. Geospatial data needs to have longterm stability concerning data structures and good updating regimes. Only trusted data supply leads to broad adoption in user communities as users tend to be less interested in investing in tool if data supply is unstable. Figure 1: The national geoportal. Source: Norwegian Mapping Authority.

5 When it comes to dissemination, ISO and OGC web services are broadly accepted, and hundreds of web map services are being offered by public organisations and documented in the national geoportal. However, these organisations continue to offer other web services with other formats, thus offering parallel distributions. As many of the Norwegian data are open data, additional distribution of the data is also offered by the private industry, but in other formats. This makes it difficult for a user to find out which are the authoritative sources and which are the most standardised and up to date versions. Figure 2: The map catalogue of the national geoportal. You may filter on crisis management. Most of the data sources are open data, free of charge and are distributed as web map services (WMS)and web feature services (WFS). Source: Norwegian Mapping Authority. 3. Geospatial institutional frameworks supporting disaster risk management Institutions supporting disaster risk management In Norway disaster risk mangement is carried out by a series of institutions at different levels. Norwegian directorate for civil protection, municipalities, county administrations, police, health authorities through ambulance and rescue teams, coastal authorities at sea, the police, the armed forces and NGOs all have specific roles and are active in both practical work during disasters, in coordination and at strategic levels. Crisis mangement organisations are natural parts in most of the NSDI committees and forums.

6 The NSDI organization both at national and local levels There are two main NSDI administrative bodies in Norway. The NSDI Advisory Board gives advise at policy level to the ministry in charge the Ministry of Local Government and Modernisation. The NSDI Coordinating Committee, which constitutes representatives from each ministry, is aiming at developing common understanding of challenges and agree upon recommended actions. The NSDI Coordinating Committee do not have funds, thus actions have to be undertaken by each organization or as joint projects. There are regional NSDI committees organizing prioritization of data capture investment programmes. Figure 3: Norwegian national spatial data infrastructure (NSDI) organisation. Source. Norwegian Mapping Authority. NSDI with a crisis management committee All these above mentioned organisations are actively involved in the NSDI. A committee on crisis management has been established, with the aim to come up with user needs and participate actively in the development of data and services where possible. It is essential that the organisations understand how to utilize the NSDI and the mapping agency and other distributors of data need to understand the complexity of needs. Recently, the organisations have concluded a list of priority data and additional priorities - as a common voice about standard formats, standard cartographies and standard APIs to be offered through the national geoportal. There is open access and free of charge data available to the NGOs involved in crisis mangement through the geoportal.

7 Figure 4: Norwegian national spatial data infrastructure (NSDI) has a separate committee on crisis management- with the aim to define needs, coordinate development of relevant data sources and the use of the national geoportal as focal access point. Source. Norwegian Mapping Authority. Use - Land use planning - integration of geospatial information about risks Land use planning has a more than 40 years history in Norway. The revised Planning and Building Act from 2009 is the present legal instrument. Land use planning is divided into several levels, the most important being master plans and zoning plans. All 422 municipalities are developing master plans for their entire territory. Zoning plans are developed in built-up areas or areas where different kinds of intensive land use and construction is going to take place. There are about zoning plans in Norway. The legal framework has made it mandatory to develop digital and standardised versions of new plans. Older plans are also digitized. By 2018 about 70%, ( plans) of all zoning plans in Norway are standardised and available in GIS-formats. There is a national distribution copy available to ministries and county administrations, including disaster management work. Implementation of online daily syncronisation of data from municipalities to the national distribution database started in The plans contain restriction zones representing susceptibility zones of e.g. land slides and floods. These restriction zones regulate e.g. long-term ban on construction within the zone, or regulates the kinds of buildings and land use to be located within the zone. The thematic map data flows from the sector authorities through the online services offered by the NSDI and the geoportal. Separate risk assessments are to be made for all major planned projects. The administrative and technical systems are wellfunctioning. In this way the Land and Building Act underpin the aim of building disaster resilience through the use of spatial data.

8 With complete digital versions of land use plans development of online planning tools is common. The GI industry has developed online tools being used in the municipalities and counties, where dialogue with the public during the planning process is in focus. Figure 5: Master plans and zoning plans in Norwegian municipalities are being digitized, thus making digital, online and public planning dialogue possible through web portals. Thematic map data concerning flood and land slide susceptibility are common input data in the process. Thus, the Planning and Building Act can be seen as a valuable instrument for developing resilience to disasters. 4: Legislation and financing regimes supporting disaster risk management Legislative frameworks The Geodata Act, the Planning and Building Act and the Cadastre Act are of prime importance for the development of the spatial data infrastructure in Norway, thus supporting disaster risk management. The Geodata Act The Norwegian Geodata Act was made info force in The act implements the European Union Inspire directive, regulating the establishment of the Norwegian NSDI. Since 2012 different detailed regulations have been added as supplementary legal elements. The law is enforcing the national implementation of the European Directive on Spatial Data Infrastructure (INSPIRE). The law regulates sharing of data from public bodies to be used in the private and public sectors. Thematically the law covers most sector data, specifically defined with 34 broad themes such as population, health, risk management, transport, geology, energy, minerals, land use, farms and aquaculture, water and biodiversity together with more general themes such as aerial and satellite images, elevation and bathymetry (depths). The themes overlap the UN-GGIM list of fundamental geospatial

9 data, however the thematic definition of the Geodata Act is broader and includes a wider set of natural hazards themes together with data on environment, agriculture and energy. One of the main target group of the law is national public bodies producing spatial data. There are a series of technical (documentation, formats, APIs) and administrative requirements defined, which are to be solved by the public organisations within defined deadlines. Deadlines are from 2010 up to Sharing of data for public bodies - Documentation of data and APIs in the form of metadata - Data to be delivered according to certain standards and formats (e.g. GML) - View services, being APIs over map presentations of spatial data (e.g. WMS, WMTS) - Download services, being APIs over the spatial data themselves (e.g. WFS, SOS, WCS) - Documentation of other relevant APIs (Spatial Data Services, e.g. rest services) - Harmonisation of data, requiring data to be delivered according to defined structures and formats, defined by the European Union in the Inspire directive. The Norwegian Mapping Authority is following up the public organisations, with guidance, but in addition controlling the technical deliveries. The act is very important to support access to all kinds of data for disaster risk management. The standardised formats, open access and the broad set of relevant and up to date data are of crucial importance for risk management in Norway. The Planning and Building Act The Planning and Building Act is a broad framework for regulation of planning and building activities in Norway. It regulates how the public, the municipalities, the county institutions and the national public organisations are to cooperate through defined work flows. Concerning spatial data, the law is defining requirements on establishment and maintenance of master plans, detailed zoning plans, reference data and sector specific and environmental data to be used as input in the Planning and Building Act processes. The law gives the municipalities responsibilities concerning mapping of own territory. This has resulted in the definition and development of the standardized product FKB joint technical spatial reference database, now covering all municipalities. In addition, the municipalities are responsible for maintaining the cadaster with up to date data on properties, building and address information. The municipalities produce different kinds of detailed thematic maps as well. The planning and building act defines roles to the Norwegian Mapping Authority and other public national organisations through the definition of a collection of defined themes; Public spatial data (DOK). The land use plans are to be developed by all Norwegian municipalities. The planning includes risk assessments and inclusion of susceptibility maps and risk zones in the master plans and detailed zoning plans. Underlying data from the sectors need to flow to the municipalities and private land developers. Here the Geodata act plays together with the planning and building act.

10 The Cadastre Act The Act on a national register for land information (The Cadastre Act) shall ensure access to important land information by means of a uniform and reliable register (the cadastre) that will be kept of all real estate in the country, and by a clarification of boundaries and property-related matters. Furthermore, the act shall ensure access to a joint geodetic reference frame. The Norwegian Mapping Authority is coordinating work being carried out by the municipalities. There is a national centralized system, and all municipalities send information automatically from their local systems to hold the central system updated. There are Cadastre APIs available. The cadaster information is widely available within rescue and disaster management organisations, including private companies with roles as service providers. Financial issues Basic governmental funding for reference and thmatic data The Nowegian Mapping Authority has most of it s funding through governmental funding. Only a smaller portion comes from sales, as most data are for free. The funding regime seems stable and secures production and maintenance of many kinds of data on physical infrastructure, hydrography, elevation, place names, cadaster, building registers, address register etc. Geovekst is a year old joint funding regime in Norway for financing detailed referece geospatial data. Several stakeholders has agreed for a long term co-operation. Both municipalities, the mapping agency, road authorities, agriculture authorites and other are participants. They see that joint investment may leads to cheaper data capture, more standardised data and thus a better service to users. The standards on data content is followed in all projects by all 422 municipalities in Norway. Cost-sharing financial arrangements Norway has an interesting model - Geovekst - where national, regional and municipal public organisations and some public/private organisations with given specific service and infrastructure responsibilities cooperate by joint funding of geospatial data. They fund both data capture and data management based on long term agreements. The actual share of investment from each party varies somewhat from one year to the next. The joint funding focus on production and maintenance of accurate reference data such as large scale topographical maps, line maps with cadastral information, buildings, transport network, other infrastructure, land cover data, orthophoto and height data lidar. More than 95% of all municipalities participate in the programme, only some major cities organize their mapping individually.

11 Figure 6: Norway has a long lasting model for joint funding of detailed reference spatial data through the Geovekst consortium. Different public sector organisations cooperate. Joint funding gives more production in total and has additional positive effect by leading to standardisation of products and dissemination formats. Funding the particular elements Norway has specific programmes on large investments on geospatial information. Three examples can be given - Norwegian system for lidar data: This is presently a 5 years project resulting in full-coverage of lidar scanning of the land territory. The project is funded by the government, and has support from several ministries, as this dataset has a multi-purpose function. Detailed data are developed for populated areas, areas of economic interest or other areas of particular interest. The data are crucial for natural risk zone mapping, such as flood and land slide susceptibility map data. The data are freely available, both for public bodies and for value-adders. - Norwegian system for Orthophotos: The orthophoto programme is funded by several parties. The data are stored in a national store with a joint distribution system through the Norwegian Geoportal. Orthohphoto mosaic is offered. Updating frequency is high in settlements. The data are available to disaster risk management, land use planning and also private sector. - Mareano. This is a governmental programme to support mapping of seabed depth and other physical parameters. The data are important in marine activities, fisheries, oil and gas, etc. The NSDI forum for risk mangement have identified additional data that are not funded, or data that needs to be structured to be of value. It is a challenge to fund some of these activities.

12 5: Examples of risk-relevant thematic map data developed by the public Besides many relevant reference data, different Norwegian institutes produce thematic map data relevant to disaster risk management. Some of the data are produced specifically for disaster management purposes, other are multi-purpose data. Detecting areas susceptible to natural and technological hazards Geospatial data may help plan and adjust future land use, and in addition be used in crisis management. A series of relevant geospatial data may be developed according to the natural hazards occurring. In Norway this may be areas prone to heavy winds, flooding of rivers and inland waters, flooding in cities, sea level rise and flooding at sea shore, soil and clay slides, rock and stone slides, avalanches, forest fires and city fires. Local tsunami risk zones caused by mountain blocks slides Mountain block slides may occur mostly in areas of steep slopes in different areas of Norway. Giant blocks of bedrock may loosen due to earthquakes, frost or water erosion. Figure 7: Mountain block slides may cause local tsunamis. Tsunami flooding maps may help understand possible effects om towns and settlements. Norway has recently started to produce such map data to be used in long term planning. The Norwegian Geological Survey and the Norwegian Water Resources and Energy Directorate have recently started mapping of potential areas of mountain block slides. Particular focus is given to bocks that can hit the marine fjords or freshwater lakes. Giant Rock slides into water may cause local tsunamis.

13 The height of the tsunami may be high and may hit settled areas. Norway has experienced such tsunamis at several occasions, resulting in loss of lives and destroyed settlements. In order to plan for future land use and also to organize warning systems there is being produced geospatial data representing tsunami flooding risk zones. Areas prone to land slides and avalanches: Norway produces a series of geospatial data locating susceptibility zones concerning land slides, quickclay slides, rock slides and avalanches. Both break-out areas and areas expected to be hit by the masses are mapped. In addition, Norwegian institutes holds records on single incidents, deaths and casualties and major disasters linked up to the different kinds of land and snow slides. The geospatial data are to be used in land use planning, when offering building permits and may also be of value in emergency operations. The geospatial data are being distributed as data files and online weg services, notified in the national geoportal. Figure 8: Land slide and avalanche susceptibility maps showing break-out areas prone to be hit by the slides. The maps are valuable in long-term planning. Areas prone to flooding by inland waters and lakes: Norway experience flooded due to exceptional raise of water table in rivers and lakes. Valleys, deltas and flat river plains are most commonly affected. Frequency of occurrence seems to be increasing. This might be caused by climate change. Effects are mainly on buildings, infrastructure, production units and

14 agricultural resources. In order to have use land use planning actively and regulate areas susceptible to flooding, flood risk maps are being produced for selected areas. The mapping includes mapping of constructions for flood control. The Norwegian Water Resource and Energy Directorate is in charge of the mapping and development. Area and line for highest recorded and expected level are being produced. Different layers represent different probability classes. Detailed digital terrain models are being used in the production. One of the aims of the Norwegian lidar scanning programme is to support such flood susceptibility mapping. Figure 9: Norway has a programme on mapping flood susceptibility zones. The data are distributed in the NSDI as a series of products relevant for disaster management. Surface runoff and flooding due to heavy rains: Due to climate change with steadily increasing intensities in rain showers, there is a growing interest in the detailed flow pattern due to heavy rains. In Norway there has been developed surface runoff-models based on two input data 1) lidar 3D terrain data 2) known drainage culverts. The model detects smaller and larger depressions and locations where expected flooding may occur. As lidar data is easily available this may be a good tool for planning and mangement of infrastructure, settlements etc. Municipality and county administrations are developing such data in Norway.

15 Figure 10: Assessment of surface runoff may be carried out by use of 3D terrain models based on lidar mapping. Norwegian municipalities use such methods when producing the knowledge base for long term planning. Areas prone to flooding by sea level rise and storms Flooding due to sea level rise may affect shoreline land use including harbours, city centers, industrial sites, agricultural land, transport network, sewage systems etc. Figure 11: 3D terrain data together with knowledge about expected sea level rise can used in modelling of areas susceptible to sea level rise. Storms may cause additional sea level rise. The information is of prime importance in urban planning and development.

16 With additional winds this may give additional rise in sea levels. Through the use of lidar 3D terrain models, knowledge on present local sea levels (high and low waters) figures, and knowledge on ground stability, may be used to detailed modelling of prediction of areas susceptible to flooding 20, 50, 100 or 200 years ahead. Norwegian Mapping Authority is developing these kinds maps. Overview of vulnerable population, facilities and resources The Norwegian spatial data infrastructure serves a series of data sets to be used in getting location overview of population, facilities and resources. Population maps are being produced in the form of gridded maps, with resolution of 1x1km and 1x 250m. These many be used when a crisis occurs, and in additon be used in assessments of consequences to disasters. Norway has registers of population numbers also connected to each address. There are strict restrictions in access to such information, but rescue and disaster management organisations may apply for and use such data, both for assessments and in emergency activities. Figure 12: Population distribution by 250 grid may be used to located and assess vulnerable population in disaster management. 6: Challenges and lessons learnt: The Norwegian Spatial Data Infrastructure (NSDI) is well developed, with 600 active partner organisations. It supports sustainable growth in the private sector and public services across sectors and levels. Risk management is a particular area of focus and use. Norway has experiences in developing both local and national SDI activities. Some observations that may be valuable to others developing spatial data infrastructures are;

17 Involvement and trust: Broad use depend on trust to data and solutions. We involve sectors, municipalities and the private industry. Distributed responsibilities: Each organization offer data according to agreed standards. Many larger organisations can fulfil expectations. However, some stakeholders with limited resources may need additional support. In Norway the geoportal offers valuable tools to fulfil standardised distribution. Timeline: Development of a well-working NSDI takes time. Norway has a 25 years history. Other countries should expect long-term developments as well. Standardization: Both ISO, OGC and national standards are essential for easy data flows. As described in the text above it is essential to work for broad acceptance. Norway has used legislation, stakeholder agreements, knowledge exchange and direct contact and involvement of the GI industry. Cost-sharing financial arrangements. Norway has an interesting model where national and municipal stakeholders do joint funding of data capture and management. Geoportal: The national geoportal is an important focal point for access to data. Legislation - The Geodata Act and the open data policy has resulted in substantial increase in easy accessible data. 7: References Norwegian Directorate for Civil Protection Functions: Norwegian Geoportal - Geonorge: Map catalogue: - Map viewer: Norwegian Government: The Norwegian Cadaster Act: - Norwegian Mapping Authority - Norwegian NSDI Norway digital: - Norwegian seabet mapping programme Mareano - Norwegian system for orthophotos - Norwegian system for lidar data 3D-elevation models - Inspire- Directive on Infrstructure for spatial information in Europe. -