CHAPTER SIX OPTIONS FOR THE PROVISION OF ENVIRONMENTAL INFORMATION
This study has examined the different ways in which the Scottish Executive could consider guiding public authorities towards improving and building upon existing practice in order to facilitate greater access to environmental information and respond to requests for such information. In particular, this chapter compares existing practice with alternative approaches, taking into account the merit of establishing a national service to provide environmental information. The options discussed in this chapter inform conclusions and recommendations for the effective provision of environmental information for Scotland.
6.1 Desk research undertaken by this study has highlighted some of the contradictions inherent in providing environmental information (Haklay, 2002b). This is evident on the supply side in terms of the structure of the organisation and on the demand side where there is so much variation in type, behaviour and needs of the service user that there is no single answer to effective provision of information. In many ways this is an inherent challenge and, if the aim is to enable all members of all communities to have access to information and in so doing enhance their ability to participate in decisions that affect the quality of their local environment, then there is no neat solution.
6.2 There is however an approach combined with modelling which allows a move in the right direction. The Haklay thesis (2002b) proposed a general conceptual model, shown in Figure 6.1, for providing public access to environmental information. This model demonstrates the complexity of developing a system that can be used by all stakeholders and all the issues that need to be addressed.
Figure 6.1 Conceptual model for an environmental information service
6.3 Developing a service providing environmental information that can be accessed by all members of the general public is a substantial task, which entails a number of complex issues. A Canadian study found that:
"One of the greatest challenges is getting across the complexity of the forces shaping the human impact on the environment, and hence the broad spread of responsibility for action and the range of actions needed. People tend to look for a single mechanism, a particular group of people to blame, and a single solution".39
6.4 Chapter 5 investigated various examples of providing environmental and non-environmental information. In terms of developing a service providing environmental information for Scotland, a number of models may be considered, including:
- A one-stop-shop
- A call centre
- Online service
- Graphic representation of data (i.e. Geographic Information System ( GIS))
- An information network
- Government portals
- 'Single interest' service
- 'Real-time' service
6.5 Our research has shown that many large, regionally diverse countries such as Canada, Australia, Denmark and the US have developed services providing environmental information that serves the general public at a national level. Some focus group members indicated that there was a need for a similar 'gateway' in Scotland to help promote the provision of environmental information.
One-stop-shop
6.6 A one-stop shop is an outlet able to provide the complete range of goods or services that a customer might require and can offer a multitude of services to a client or customer. The idea is to provide convenient and efficient service for customers. 40 A one-stop-shop aims to resolve all queries on the spot, so that all requests for environmental information can be dealt with in one place.
6.7 The one-stop-shop concept has already been adopted by many local authorities in Scotland and could potentially become a model for implementing such a system on a national level.
6.8 The one-stop-shops developed by local authorities under Local Agenda 21 are good examples of providing easy-to-access facilities. A good practice example, Case Study 2, illustrates how the London Borough of Brent Council provision of a one-stop-shop can save a customer time, as all services can be accessed from one point.
6.9 A national one-stop-shop for Scotland may involve housing all environmental information and services into a single location, or it could involve a team of 'front-door' advisors able to quickly access and provide information to a customer. Findings from the providers' survey and further discussion in the focus groups indicated that to avoid duplication a virtual one-stop-shop would be preferable to physically housing environmental information in a new or existing organisation. However, it should not be underestimated the work that would be involved in drawing this together. The London Borough of Brent Council is providing a one-stop shop of services they own and run; in Scotland there is no single provider in this position.
Call centre
6.10 A call centre can facilitate access to information, particularly for those that live in rural or remote areas and others that are not able to visit a one-stop-shop in person. A call centre could involve an office of front-line receptionists that can deal with enquiries and act as 'gatekeepers' of environmental information. Some information may be easily accessible and can be provided immediately over the phone. For more complicated enquiries, the receptionist would be able to refer the caller to an appropriate source of information.
6.11 One example, Case Study 12, discusses a service called CRIS that provides information to rural communities in Canada. Not only is the content of the information focused on rural issues, but the method of delivery has to be sensitive to rural needs. Therefore, this service providing environmental information is based on a telephone hotline, even though it also incorporates a website.
6.12 Call centres can employ staff to provide advisory services in order to interpret technical information to the public. Effective call centres often rely on Customer Relationship Management ( CRM) technology in order to track callers and enquiries and ensure that these are being dealt with properly. These CRMs can log enquiries to build Frequently Asked Questions ( FAQs), which can then be used to facilitate future requests.
6.13 The Consumer Direct hotline (Case Study 3), is an example of a call centre that is used to provide information and advice to the general public. Although their advice is free, users have to pay a telephone charge as they use a 0845 number in order to publicise a single number nationally. The 0845 number allows staff to determine where the customer is calling from, and allows calls to be diverted to other contact centres in different locations. Consumer Direct also provides regional landlines that are toll free, but, as there are so many, these are not publicised as widely.
6.14 Call centres are often used to complement other services, for example, Case Study 11 for the London Borough of Newham, is an example of a call centre that is utilised in conjunction with one-stop-shops and an online service.
6.15 Through our public survey findings it is apparent that it is principally among the more elderly and less affluent that interest remains to be stimulated. Current research also suggests that a mix of media is required to encourage access to environmental information services and this should include access by telephone. It is likely, therefore, that a call centre or helpline would be an integral part of effective provision of environmental information in Scotland whether this is a 'one-stop shop' or a signposting service.
Online services
6.16 Most public authorities in Scotland have websites and provide some amount of online information and services. An online service can be useful for those that have access to the internet, and particularly for those that live in more remote areas that are 'wired up'. An online service for Scotland could range from providing an A - Z index and links to other public authorities, or it could be more interactive and allow for access to personal information and online payment systems.
6.17 Many organisations have increased their reliance on providing information over the internet in order to reduce costs. The Danish Information Centre for the Environment and Health ( DICEH), which is discussed in Case Study, has followed this approach and continually updates their website in order to provide current, relevant information.
6.18 In the context of data management and the needs of the user of information it is important that these services are user friendly. Online information can be improved by thinking about how the user may look for information. This way information is clustered into clearly labelled and organised sectors to facilitate customer access.
6.19 With the increasing use and access to online information and the recognition that a mix of provision tools is required online services will form part of effective provision of environmental information in Scotland. However, it remains important to recognise that the online service will be one of a menu of options to access the service.
Use of GIS
6.20 Information provided in a graphical format can often be more useful to users, particularly in presenting environmental information. As the public becomes more familiar with accessing information online, then it may become more appropriate to display environmental information through geographically based systems.
6.21 A map-based system has been used successfully for the on-line service on the UK Environment Agency's website called 'What's in Your Backyard?' (see Case Study 5). This national website allows users to enter their post code in order to find out about the quality of the environment in their local area. Interactive maps are displayed, with a choice of scales for the user, and symbols are used to represent the locations of testing sites and other environmental information. This website is a very good example of how national data can be presented on a local scale, which helps to generate public interest.
6.22 GIS could be particularly useful at a national level as it can help to narrow down information searches immediately from a national scale to a local level. This could be relevant for Scotland, due to its varying geography and the remoteness of many communities. The investment of bringing current GIS together in a central database would be considerable; however, this may be very beneficial in the long run.
Information networks
6.23 Networks of similar organisations and professional interests can be used to help link agencies and sources of information together from a wide geographic area. Having professionals involved can encourage research and networking about new topics, and can help to provide shared knowledge and learning opportunities.
6.24 Information networks can be used to develop seminars and conferences, which can help to inspire learning and public participation. Case Study 6 for National Health Service Scotland, which developed the Healthy Environment Network system ( HEN), is a good example of an information network that shares knowledge across agencies and disciplines to address issues around the environment, socio-economic interests and human health. This network encourages learning and participation by running seminars and workshops on relevant topics, and forms short life working groups on environmental issues of public interest.
6.25 Health Protection Scotland developed the EHS3 system (see Case Study 1), which amalgamates both health and environmental data in order to provide a 'value-added' product. The EHS3 project is managed by industry professionals, and involves the collaboration of a number of different environmental and health agencies. The project compiles regional environmental and health data for Scotland, to help make more sense out of trends that may be shown in different data sets (e.g. an increase in air pollution and an increase in asthma cases in a certain location). This can make data more useable for others.
6.26 In order to facilitate communication across national borders, the European Commission has developed a network called Scientific Information for Policy Support in Europe ( SINAPSE) that acts as a tool for exchanging information within the international scientific community. SINAPSE assists in the dissemination of scientific advice through an electronic library of accessible scientific opinions and advice issued in Europe.
6.27 Findings from the focus groups indicated that the establishment of a network of environmental information providers would be a welcome development and the network could help share good practice and standardise provision. An existing network, such as the Convention of Scottish Local Authorities Freedom of Information Officers Network could be a useful 'base membership' to grow a network specifically for environmental information providers.
Government portals
6.28 Government portals can be used as a central location to link various government departments to one location. These online portals provide a single 'face' to the public, which can then guide the user on to the appropriate information using links and signposting. As discussed previously in this report, the presentation of information on a website should be intuitive and not require the user to understand the structure of government departments.
6.29 Case Study 7, for the USEPA's Office of Environmental Information, indicates how a single gateway system can be used on a large national scale. Case Study 8, for the Australia Government Environment Portal, also acts as a 'gateway' to providing information at a national scale. This system is designed to act as a highly centralised, single gateway that facilitates easy public access, although it draws together information from all over the country. The Portal uses signposting to direct users to particular sectors of the environment, such as the atmosphere or biodiversity. This is particularly important as the user does not need to know how the government is structured, they can just follow the signposts for the environmental issue they are concerned with.
6.30 It was suggested during the focus groups that a 'gateway' could be adopted in Scotland to guide people to the relevant sources of information. This would be the first point of contact for any environmental information and could be called the 'Scottish Environmental Gateway.'
'Single interest' service
6.31 This type of service is focussed solely on one type of user, or one specific issue or topic, and is useful in providing information to specific user groups (i.e. consumers or campaigners). This can target current issues that are of a concern to a specific group of people, and can also be useful in providing more detailed information on a certain issues.
6.32 The single interest service can be used effectively for the provision of consumer information and in particular the delivery of sustainable production and consumption aims of Choosing Our Future (Scottish Executive, 2005a).
6.33 Case Study 9, the Green Consumer Guide, provides information for 'green consumers'. This is very specific to each type of user (i.e. an individual, a corporate or government consumer), who may be looking for particular information on paint or what type of food to buy.
6.34 The Australian Environment Portal (Case Study 8) has been based on the agency's knowledge of their customer groups and specific subjects and topics. This means that information for each topic can be tailored to the appropriate user group so that if they have a single interest area they can access information specifically designed for their use.
6.35 In a Scottish context there will be a role for the 'single interest' service, particularly in the interest of increasing the proactive supply-led provision of environmental information. As it is often easier to engage the potential user of information through a single interest rather than a broader provision of information, this may be a more successful approach. However, this research suggests that this is part of a larger service which runs a programme of 'single interest' promotions rather than establishes a number of different services.
'Real-time' service
6.36 A 'real-time' service provides information on a continually updated basis, such as a weather forecasting website. For particular types of information, it is necessary to keep relevant up-to-date information in order to keep the public informed.
6.37 Some environmental information must be maintained on a very regular basis. Case Study 10, for the USEPA's AIRNow program, cannot scientifically verify the data that is being used due to these time constraints. Nevertheless, the air quality data used to generate the maps and forecasts on the website are collected using approved techniques.
6.38 Similar air quality monitoring programs have also been undertaken in the UK. The online UK National Air Quality Information Archive was developed for the UK Department for Environment, Food and Rural Affairs and the Devolved Administrations. This website is updated hourly and provides air pollution information for the regions of the UK. Two examples of these are Case Study 14 (Air Quality for Northern Ireland) and Case Study 15 (Air Quality for Wales).
6.39 In Scotland, SEPA funds the Bathing Waters Signage programme, which provides daily information on predicted water quality on their website, through a digital telephone hotline and on electronic message signs at ten bathing water sites. It is important that this information is continually updated as the purpose of the signage project is to warn the public when unsafe conditions may exist.
6.40 'Real-time' services are important for more immediately required information about environmental quality, such as, air, weather and water, where there could be a potential exposure to risk from temporary changes in quality. Due to the requirement for ongoing 'real-time' monitoring and verification of data these services are likely to be provided by a few specialist organisations such as SEPA. For the purposes of effective provision of information links to these 'real-time' services should be included within any 'gateway' or 'portal' for environmental information.
Summary
6.41 This scoping study has found that it is most beneficial to use a number of techniques in order to develop a service for providing environmental information that can reach the greatest number of people. The variety of methods used will depend on the 'user' and will vary regionally and demographically, depending on the needs of the local users.