OR/17/005 Key gaps in understanding within NERC (BGS) and local government

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Bonsor, H C. 2017. Integrating NERC (BGS) subsurface research and data to city development processes and policy (NERC briefing note). British Geological Survey Open Report, OR/17/005.

There is currently a disconnection between NERC (BGS) and LG development planning and policy specialists. This is reflected not only in the present disparity in awareness and utilisation of NERC (BGS) data in LG’s, but also in the key knowledge gaps within both organisations. These include:

In NERC (BGS):

  • There is limited understanding of the full range of decisions LG’s are needing to make in city development processes, and at what levels and roles these decisions are made
  • There is incomplete understanding of the differing capacity within these levels to utilise different forms of relevant subsurface information data.
  • What training and guidance is required to be delivered with NERC research and data, to ensure data can be utilised by local governments.

In local governments:

  • A lack of awareness of what NERC data and research knowledge exists and its relevance — particularly within strategic levels. Specialist services teams, such as environmental and geotechnical service teams overseeing design and construction of development, have a much better awareness, but it is still incomplete.
  • Weak understanding, as to the importance of scale of data and how different NERC (BGS) of the subsurface data are relevant and appropriate to different scales of decisions;

Bridging the critical knowledge gaps requires increased awareness, understanding and capacity within both organisations — Figure 3.

Figure 3    Increasing awareness, understanding, and capacity are the cornerstones to LG being able to harness the value of existing data and research, and for NERC to deliver future accessible and relevant data.

The amount of time and investment required to identify which roles and processes in both organisations should be connected, and what are the most effective platforms for the roles to engage, is significant. The learning being developed from the Fellowship by NERC (BGS) and GCC, will be used to identify more sustainable and replicable methods for NERC (BGS) to engage with LG development planning teams. Key learning points from the work between NERC (BGS) and GCC so far are discussed in the sections below.

New cross‐organisational understanding, which is not tied to individual projects or research programmes is required

Figure 4    To deliver new city development approaches, the city ‘cell’ must not only be comprised of Local Government service teams, but also the data and knowledge of RCUK and other key stakeholders. This requires rich cross‐organisational understanding, which must be part of our DNA, rather than linked to specific projects or individuals.

There are limited systematic flow paths of data or knowledge between NERC and Local Governments

The existing knowledge gaps are also manifested in the very limited systematic data flowpaths between NERC (BGS) and local governments. Data exchange, or utilisation, at any stage of the development process is heavily reliant of contact between individuals, rather than organisational roles or workflows.

LG’s procure a large amount of the new, high quality, ground investigation data generated each year in the UK. In the absence of legislative requirements to report shallow borehole data to NERC (BGS) as the UK National Geoscience Data Centre (NGDC), only a small proportion of all site investigation borehole data are held by BGS (NGDC). These data are, however, an important component of urban subsurface environmental knowledge, and are required by NERC (BGS) to be able to develop higher quality relevant strategic urban geoscience information in the future. LG’s also largely unaware of the NGDC, and the services it providesto access existing data.

Developing new systematic and automated data ingestion processes from local government (and national stakeholder) framework contracts and data procurement processes is essential for: a) NERC to have sufficient data to develop higher quality strategic research and data for cities in the future; and b) for LG to have increased open data, better internal data management and data re‐use reducing duplication, and improving data analytics capacity, in line for example with the aspirations and drivers of the Future Cities programme — Figure 5.

The Fellowship is piloting new data ingestion mechanisms, via revised contractual requirements of LG’s and key national stakeholders, which will mean ground investigation data from major redevelopment contracts are deposited to the centralised National Geoscience Data Centre (NGDC) in a standardised, validated digital data format (AGS), using an automated web service. Project‐scale data will be available for long‐term re‐use by all stakeholders under Open Government Licence (OGL), and the increased accessibility of these data to NERC (BGS) will enable NERC (BGS) to develop higher quality strategic information of the subsurface and ground conditions. The pilot is now being extended to a national‐scale across Scotland through key stakeholders, and it forms a robust test for a replicable template for elsewhere in UK and internationally.

Figure 5    Transformation of present data project‐level data utilisation and re‐use needs to happen to enable LG and NERC to develop relevant higher quality subsurface knowledge and policy for city development processes.

The role of 3D information for LG development planning and policy needs to be better understood

3D information and models can be highly effective communication tools, and there is a strong, aspiration within LG’s for greater utilisation of 3D data and information, to support new integrated above and below ground spatial planning approaches in line with FutureCities and SMART cities initiatives. Private sector city stakeholders who undertake design and construction work share a similar drive to be working increasingly with 3D, above and below ground, Business Information Models (BIM), in line with the UK Government construction and industrial strategies (UK Government 2015[1]). NERC (BGS) has also, independently, invested significant resources in recent years to produce 3D geological information and models for key regions in the UK and internationally — Glasgow forming a key UK pilot (Merritt et al. 2007[2]; Kessler et al. 2009[3]; Campbell 2010[4], 2016[5]; Kearsey et al. 2015[6]).

There, is however, relatively poor understanding by any of the actors (software vendors, LG, NERC (BGS), innovation programmes) as to what is the most appropriate and relevant integration of above and below ground datasets for new spatial planning approaches; what is the most relevant strategic information of ground conditions for 3D models targeted at supporting early strategic city development policy decisions; or, what is the most accessible software platform to do this at a city‐scale.

To begin to address some of these gaps, the Fellowship has identified several pilots, or ‘demonstrator projects’ between NERC (BGS) and GCC. The first of these is assisting GCC to undertake a strategic housing land audit based both above and below‐ground screening datasets, to assess what land assets could provide required housing infrastructure, and what investment is required to unlock and deliver the development on these land assets.

Lessons could also be learnt from where NERC (BGS) thematic screening data of subsurface conditions and resource opportunities have been successfully used by the insurance industry and regulators to inform policies — for example, the use of NERC (BGS) groundwater vulnerability and resource potential maps used by environmental regulators. The lessons learnt from these approaches of knowledge delivery, could be applied to city development planning. Small changes to the presentation of these thematic data may significantly increase the accessibility of datasets to informing city development policy (see following section).

There is also a varied capacity within LGs to utilise 3D subsurface information, particularly at strategic levels within development planning and policy teams. Training to these LG areas is required to ensure relevant strategic subsurface information can be utilised effectively and appropriately in 3D according to scale, certainty and relevance. 3D information and models by themselves do not provide this knowledge or training. Moreover, models, crucially as yet, do not establish systematic knowledge pathways between different roles and organisations to ensure the full potential of data is harnessed.

3D models and information do, undoubtedly, offer a powerful visualisation tool which could significantly aid LG development planning teams to develop a conceptual understanding of how integrated above‐and‐below ground place‐based solutions to city development could be developed, and utilised to deliver required infrastructure. 3D models should however be seen as one part of a work process, rather than a panacea, to improve communication and utilisation of NERC subsurface data within LGs and city development processes.

It should be noted in contrast that Project and Design Management, Geotechnical, engineering and environmental service teams) already utilise 3D information, and they represent high capacity independent users of data. Within GCC and other LG’s, these teams already use 3D subsurface information from NERC (BGS) and are working to develop their own 3D information and BIMs.

Translating comprehensive NERC (BGS) geological information on key subsurface horizons and properties is essential for providing relevant strategic knowledge to LG development planning processes

NERC research organisations have traditionally fulfilled a ‘Survey’ function of supplying comprehensive above and below ground environmental datasets or research. These are highly utilised, and very relevant and accessible to specialist teams within LG’s involved in project‐scale design and construction stages of the development process. The information within these comprehensive datasets are equally relevant to earlier strategic roles and decisions within LG’s, but different delivery of the information is required for it be accessible to these strategic LG decisions.

Translating comprehensive geological information for key surfaces (e.g. key geological horizons) is required to develop optimal ‘screening’ knowledge which is accessible to LG development planning policy. For example, refining NERC (BGS) information to show depth to bedrock, depth to groundwater, or depth to geotechnical risk horizons, instead of the entire geological model and individual geological horizons, would greatly increase the accessibility and impact of the information on likely ground conditions, and associated risks and costs of above‐and‐below ground development opportunities. Equally, Action Learning (see p.26) of the Fellowship has found small changes to the presentation of information can vastly increase the accessibility of the information. Changing a depth to groundwater map to display only two categories of depth to groundwater, which are of critical relevance to development decisions, leaving other areas non‐shaded, vastly increases the accessibility of the relevant data and knowledge. Applying appropriate thresholds to information in such a way could help refine some NERC (BGS) datasets.

Thematic screening data of subsurface conditions and resource opportunities is essential for LG development planning and policy teams to be able to develop integrated above and below ground conceptual model of cities land assets and how new integrated place‐based solutions could be realised.

Detailed discussions between geologists from NERC (BGS) and Norwegian Geological Survey (NGU) and LG development planning teams in Glasgow (GCC) and Oslo (Oslo Municipality), respectively, have identified the following ‘key surfaces’ of geological understanding to be important and also accessible information (Municipality of Oslo 2017[7]), to LG development planning processes:

  • depth to bedrock;
  • depth to clay;
  • depth to horizons of geotechnical risk (inc. mining);
  • depth to groundwater.

Interestingly, the drivers for these data in Glasgow and Oslo are very different — within Glasgow these data are required by LG’s to be able to mitigate and unlock brownfield development, which is often seen as too costly to develop by stakeholders, whilst in Oslo the data are required by the LG to constrain brownfield development and elaborate engineering and architectural urban building design, which can incur subsidence and adjacent infrastructure damage in some geological contexts (Municipality of Oslo 2017[7]). Despite the opposing drivers, the same strategic knowledge of the subsurface information, and translation of geological information, are required by the cities strategic development planning.

The work within these two cities suggests that a replicable package of relevant and accessible data and research can be created by NERC (BGS) for cities which would have relevance internationally as well as the UK.

A refinement of NERC research delivery, but not a replacement, is therefore required to support evidence based development policy in LG; and not a complete new tranche of research products.

Better delivery of NERC (BGS) data and knowledge, would enable LG to undertake more effective spatial planning analysis. NERC (BGS) research products have in the past been assumed to be accessible to this planning process, but in reality, the spatial planning analysis used to inform LG development policy and investment strategies are based almost entirely on above‐ground city data, with little if any consideration of subsurface ground conditions, resources or opportunities, aside from mining risks. To improve the effectiveness of this analysis process LG and NERC organisations need to work together more closely.

Greater understanding is still required to elucidate what format and presentation of appropriate NERC (BGS) data is most accessible and relevant to LG development planning and policy. For example, there is need for stronger understanding within NERC (BGS) of:

  • When 2D or 3D presentation of subsurface information (e.g. of ground conditions) is more appropriate and accessible to inform development policy. For example, is depth to rockhead — a key NERC (BGS) dataset to the development planning and policy — most accessible and relevant as a 2D grid, or as a 3D surface?
  • Displaying key horizons of the subsurface and its properties (e.g. depth to groundwater) as 3D surfaces can be highly effective aid to increasing capacity on non‐subsurface specialists in visualising and understanding how above, and below‐ground development could be integrated, and associated risks or costs. However, it remains to be proven if 3D surfaces are as relevant or as intuitive as 2D maps of the same information to informing LG development planning and policy.

Increased engagement with national training programmes to LG, and LG networks, forms a key vehicle to increase awareness of NERC (BGS) data, and to pilot new approaches

Increasing NERC (BGS) engagement with formal training programmes to LG, and existing LG networks, forms a key vehicle to increase awareness and utilisation of NERC research within a wide network of local governments. Engagement with such platforms could significantly increase utilisation and impact of appropriate NERC (BGS) data within city development planning and policy, for relatively limited time and cost investment for any organisation.

Greater engagement with existing LG training and network platforms, would also negate the reliance on utilisation of NERC (BGS) data and research being done through contact on individual projects or individuals, and help develop more resilient organisationalconnections. Importantly, it would also mean the training, awareness and understanding is developed between different roles and levels in LG and NERC (BGS), replacing the much weaker knowledge development model which currently exists and relies on individual contacts, and on individuals being in the ‘right place, right time’.

There are potentially significant benefits to engaging with centralised LG platforms:

  • It would enable NERC (BGS) to tap into existing well‐established and recognised communication and knowledge dissemination pathways to LG’s nationally, and significantly increase awareness of NERC (BGS) as a relevant organisation of knowledge for LG.
  • Providing training services to LG in relevant appropriate NERC (BGS) data to LG development planning and policy could significantly increase the capacity of LG’s to map NERC data and research appropriately through organisational workflows, and into policy and guidance. This could significantly increase the impact and utilisation of NERC data and research by other city stakeholders (e.g. developers, consultancies, contractors).
  • It negates the reliance on contact between individuals in organisations, developing much more resilient organisation connections across levels and roles It enables NERC (BGS) to engage with multiple, and potentially all, LG at once, rather than disconnected and bespoke interaction for separate LG’s.
  • It could open opportunities to pilot new centralised data flows, and licence agreements for data between LG and NERC (BGS).

The national Improvement Service for Local Governments in Scotland

Within Scotland, the national Improvement Service (IS) for LG’s in Scotland forms a key vehicle for NERC (BGS) to engage with.

The Scottish IS purpose is to:

“help councils and their partners to improve the health, quality of life and opportunities of all people in Scotland through community leadership, strong local governance and the delivery of high quality, efficient local services. [The IS does this] by providing a range of products and providing advisory services including consultation and facilitation, learning and skills, performance management and improvement, and research” (Improvement Service 2015).

The main aims of the IS are to:

  • Help facilitate a step‐change in productivity and efficiency of LG services
  • Support the delivery of improved outcomes
  • Supporting development of work processes which are of increased resilience and sustainability
  • Supporting increased collaborative working
  • Support improved research and analytical support

There are clear synergies between the aims of the IS and NERC (BGS) to ensure increased impact of available research and data to LG. Some of the key IS activities of relevance to NERC (BGS) are:

  • IS Workshop series — these are open to all local governments in Scotland and are used to provide training, or discussion forums, for different personnel and roles within local governments ‐ for example, increasing awareness and capacity of LG services of relevant external, or national centralised data, and services, or to aid LG’s endorse new national legislation.
  • Spatial Data Innovation Hub — the IS has also recently launched a Spatial Data Innovation Hub, aimed a centralising key spatial data for use by LG nationally.

Increasing NERC (BGS) connections with the IS could open significant opportunities, and should form a key vehicle for NERC (BGS) engagement with LG’s in the future.

The Fellowship is piloting the first NERC (BGS)‐IS workshop in Scotland in May 2017 to begin this process, and raise awareness of existing relevant NERC (BGS) within LG. Representatives from LG Development planning teams and geotechnical groups will be invited from all 32 LG’s in Scotland, as well as the Regional planning groups and national parks — more information is provided on this in Section 3.

The input required from NERC organisations to engage with this, or similar IS Workshops, would be on the order of 1 to 2 days annually, and therefore minimal to the significant potential increase in awareness of relevant NERC (BGS) data to LG services, and opportunities to pilot new mechanisms of data delivery, and increased data acquisition to NERC (BGS).

Workshops are an incredibly valuable and effective means for sharing and cascading awareness and understanding within organisations, between different teams and roles.

The Association for Public Service Excellence (APSE) — UK

The Association for Public Service Excellence (APSE) forms a potential vehicle for NERC (BGS) to engage with LG on a UK‐basis, alongside the Improvement Service in Scotland. The APSE is a non‐profit organisation aimed at promoting excellence in the delivery of frontline services to local communities around the UK (APSE 2016[8]). It connects more than 250 local authorities (LG) and other organisations and provides a centralised voice and point to: facilitate increased data and knowledge exchange on LG services; provide a platform for advice and innovative solutions; and, to develop new, viable ways forward in an effort to help one another.

The APSE is owned by its members and, working on their behalf, maintains and develops a network of local government officers, managers and councillors from local authorities across England, Northern Ireland, Scotland and Wales.

Following the NERC (BGS)‐IS workshop pilot in Scotland, and the learning gained from the this, the Fellowship and NERC (BGS) could look to replicate a similar pilot with the APSE.

Need to develop a means of tracking benefit — what metrics?

There is a need to develop a means of tracking the benefit of utilising relevant strategic data and knowledge of the subsurface within city development planning — this demonstrates the costs and benefits of the approach to other LG and the value to NERC.

Tracking needs to encompass a range of metrics of ‘benefit’ — benefits could be measured in: reduced costs of construction and design phases at the end of city development processes; increased utilisation of NERC data and research; realisation of integrated above and below ground planning of infrastructure and place; increased use of subsurface resources (underground building space, energy, water); and formal planning of the subsurface.

Assigning economic value and benefit to utilisation of data within city development processes is complex (Compernolle 2016[9]), and as yet there is no clear understanding of what is the most appropriate metric, when considering cost‐benefits across the whole process. Estimating cost‐benefits with an one stage (e.g. design and construction) is easier. It is likely there will be increased costs early on in development processes, from increased data procurement, data licencing or software investment costs, but that there will be significant downstream savings in construction phases. A further aspiration is that increased evidence‐based development policy will enable LG to run more efficient planning process with associated cost savings, and inform decisions which ultimately lead to increased investment in the city. Hidden economic savings within health and environmental sectors are also possible, from city development fostering a higher quality environment, and more connected communities of increased well‐being and health. Developing means of tracking some of these benefits is essential to demonstrate the economic value of NERC (BGS) data to LG and other city stakeholders.

References

  1. UK Government. 2015. Industrial Strategy: government and industry in partnership: Business Information Modelling (BIM), pp.22.
  2. Merrit, J E, Monaghan, A A, Entwisle, D C, Hughes, A G, Campbell, S D G, and Browne, M A E. 2007. 3D attributed models for addressing environmental and engineering problems in areas of urban regeneration, First Break, 25; 79–84.
  3. Kessler, H, Mathers, S J, and Sobisch, H‐G. 2009. The capture and dissemination of integrated 3D geospatial knowledge at the British Geological Survey using GSI3D software and methodology, Computers & Geosciences, 35; 1311–1321.
  4. Campbell, S D G, Merrit, J E, O'Dochartaigh, B E, Mansour, M, Hughes, A G, Fordyce, F M, Entwhisle, D C, Monoaghan, A A, and Loughlin, S C. 2010. 3D geological models and their hydrogeological applications: supporting urban development: a case study in Glasgow‐Clyde, UK. Zeitschrift der Deutschen Gesellschaft fur Geowissenschaften, 161 (2), 251–262.
  5. Campbell SDG. 2016. The subsurface in planning and decision making — shared issues in Hong Kong and Glasgow, European Cooperation in Science and Technology (COST) Report, of Action TU1206, pp.36.
  6. Kearsey T, Williams J, Finlayson A, Williamson P, Dobbs M, Marchant B. 2015. Testing the application of stochastic simulations to predict the lithology of glacial and fluvial deposits in Central Glasgow, UK. Engineering Geology, 187; 98–112.
  7. 7.0 7.1 Municipality of Oslo. 2017. Final report — Oslo sub‐surface project 2013–2016, Agency for planning and building services, Municipality of Oslo, pp.75.
  8. ASPE. 2016. Association for Public Service Excellence (APSE) Services Directory: a guide to APSE’s activities and services, ASPE report, pp.20.
  9. Compernolle, T. 2016. Identifying ways to realize cost savings for subsurface projects by improving the use of geological and subsurface information. European Cooperation in Science and Technology (COST) report, TU1206‐32038, pp.18.