National Mapping Information
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National Mapping Information
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MissionIn support of this mission, we:
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1: The National Mapping Division Yesterday and Today
2: The Future Environment and the NMD's Vision of Its Future 3: Goals and Strategic Actions for the FutureSpecial Topics
The strategic issues facing the NMD today continue to be strongly influenced by the rapid advances in mapping technology, increasing needs for geospatial information, and continuing pressures to reduce Federal spending. These competing factors compel the Division to maintain a highly qualified workforce and seek many kinds of partnerships with a variety of customers. Much of what the Division does depends on creativity in cooperation and coordination, seeking and finding matching dollars from other government agencies and the private sector in many different kinds of partnerships and consortia of customers.
In this Plan, the major programs of the Division are realigned into three mission areas: (1) "Mapping Data Collection and Integration," (2) "Earth Science Information Management and Delivery," and (3) "Geographic Research and Applications." This realignment reflects our transition from being solely a data producer to being also an information coordinator, collecting and integrating geospatial data from many sources, public and private, for multiple uses.
The Plan is a road map that we can use as the Division moves into the future. Please join me in using this Plan to our mutual benefit as we head down this new strategic path.
Dick Witmer
Chief, National Mapping Division
The Strategic Planning Team consisted of 12 members representing
each Mapping Center, each of the five major business areas of the Division,
and the Office of the Chief. Beginning its work in January 1996, the team
completed a draft report that was forwarded to the Senior Staff in August
1996 for appraisal, revision, and ensuing implementation. In preparing
the draft report, the team followed a process that included interaction
with Senior Staff, conversations with representatives from other USGS Divisions,
and presentations by guest speakers and panels representing private industry,
other Federal agencies, State agencies, and the Federal Geographic Data
Committee (FGDC). The team reviewed a number of scientific and technical
reports. They met with many NMD stakeholders and customers to learn more
about perceptions about the Division and its future. The team also designed
and conducted the "NMD Employee Opinion Survey" to better understand employee
perceptions about the Division and to identify human resource issues needing
management attention. Strategic planning is now a principal focus of business
at selected decision points throughout our annual planning cycle.
The Strategic Planning Team received generous and thoughtful advice from numerous experts elsewhere in the USGS, other Federal and State agencies, and the mapping community. The following people were of valuable assistance in our planning efforts:
Other Federal agencies: Andre Coisman (U.S. Forest Service), George Komar (National Aeronautics and Space Administration), Bob Marx (Bureau of the Census), David Meier (Bureau of Land Management), Jim Reichman (National Biological Service), Peter Smith (Natural Resources Conservation Service)
State representatives: Dennis Goreham (Utah), Don Hoskins (Pennsylvania), Roddy Seekins (Texas)
Private sector: Cliff Greve (Science Applications International Corp.), Ed Downing (Pacific Meridian), Brian Logan (Photo Sciences), John Palatiello (MAPPS)
Federal Geographic Data Committee: Nancy Tosta
Intelligence community: Craig Chellis (National Reconnaissance Office), Karen Irby (Mapping Applications Center, USGS)
Technology: Michael Dobson (Rand McNally), Kris B. Tufto (Cray Research)
The Plan refines the NMD mission on the basis of several key issues that are expected to face the Division in the next decade. The first of these is the continuing advances in technology and telecommunications. Related to this is the growth in the use of geographic information systems (GIS) and the demand for data to use in GIS's. Also, a trend exists toward decreasing costs of both the data and the systems, leading to even more demand for and use of data and technology by more users. Another is a changing customer base and increasing demand for NMD products and services. Finally, the financial resources available to the NMD are anticipated to remain relatively static.
The Plan assumes that a much greater reliance on partnerships with other government agencies and the private sector for production activities will be permanent. It calls for significantly greater emphasis on the inherently governmental information management responsibilities, and on geographic research to support the Division's mission. Multipartner consortia and shared funding agreements will constitute the basis for meeting most mapping needs in the future, with the NMD appropriations focused on map revision in areas of importance to the Federal Government. Mapping Centers will be encouraged to increase partnership agreements to meet mission requirements. The Division will continue to constrain employment, targeting new hiring to specific skills needed to support the revised mission in areas such as quality assurance, data standards development and maintenance, contract management, and information management. Retraining opportunities for current employees will be a high priority.
The Bureau Strategic
Plan was reviewed carefully to assure that the NMD Strategic Plan would
be consistent with it. The Division planning team built on the conclusions
of the Bureau Plan regarding the political, economic, societal, and global
forces that will affect our programs in the future. The NMD Strategic Plan
also embraces all of the core competencies and business activities.
The NMP evolved out of the mission of the U.S.
Geological Survey (USGS), "...the classification of the public lands,
and examination of the geological structure, mineral resources, and products
of the national domain," as stated in the Organic Act of March 3, 1879.
In the early days of the USGS, its scientists found that they needed good
topographic base maps for their geologic and hydrologic investigations.
A Topographic Branch was established, and the topographic maps soon became
widely used for a broad range of government and industry applications.
To the general public today, these products are more closely linked to
the identity of the Survey than any other USGS activity.
The recent history of the NMD shows many changes to the organization, its programs, its methods, and its customers. What the NMD looks like and what it does to carry out its mission have evolved and will continue to do so.
In 1980, the present-day NMD was formed from the former Topographic Division, components of the Publications Division, and the Geography Program of the USGS. In 1983, the Earth Resources Observation Systems (EROS) program was added to the NMD and the EROS Data Center became the fifth field center. The outward appearance of the NMD has stayed similar since then, but many internal changes have taken place.
Around 1983, the NMD began converting its map information into digital form. Originally, the focus was on automating the map production process, but it soon became apparent that the greatest benefit was in using digital cartographic data to solve real world problems. In 1984, the NMD established a geographic information systems (GIS) program. The next year, the NMD set up a GIS research laboratory in Reston to support the USGS mission and to transfer technology to other Federal and State users.
GIS use is now pervasive throughout government and industry and continues to grow. GIS technology is a major factor in expanding the use of NMD data far beyond applications in the traditional land management agencies. GIS technology also enables government organizations at all levels, the private sector, and academia to produce basic map data for their specific needs. The NMD is now developing strategies for building mutually beneficial, responsive relationships with these organizations to accomplish the goals of the NMP.
Since 1982, when it began a cooperative modernization program with the Defense Mapping Agency, the NMD has completed a major modernization program to shift production from analog based to digital based technology. In 1990, the NMD completed national coverage at the standard 1:24,000 scale with graphic topographic maps. Since then the emphasis has shifted to a major effort in digital conversion and map revision. Keeping the maps up to date will be a major ongoing effort into the foreseeable future. At the same time as the requirements for digital map information have grown, the demand by many customers for map information in paper form has continued.
In 1982, NMD efforts to provide digital cartography coordination led to the establishment of the Interior Digital Cartography Coordinating Committee. In 1983, an Office of Management and Budget (OMB) directive established the Federal Interagency Coordinating Committee on Digital Cartography, chaired by the USGS, to address coordination on the larger Federal scale. In 1990, the OMB revised Circular A-16, which expanded the scope of digital data coordination and established the Federal Geographic Data Committee (FGDC), currently chaired by the Secretary of the Interior.
In 1994, the President issued Executive Order 12906 to implement a National Spatial Data Infrastructure (NSDI). The NMD began developing the technical means to implement NSDI framework data collection and integration. In 1995, the NMD began reorienting its data programs to support the NSDI framework concept in collaboration with other Federal, State, local, and private partners. Also in 1995, the NMD implemented a USGS clearinghouse node for the NSDI.
During the past several years, there has been a growing national debate on the role of government at all levels. It is believed that there will be continued pressure to downsize government. The fiscal year (FY) 1996 House Appropriations Report directs the NMD to increase the use of the private sector to accomplish its mission. The report requires the NMD to increase data production contracting levels to 50 percent in FY 1997 and 60 percent by FY 1999. The NMD has made significant progress toward meeting these goals.
In summary, to fulfill its mission and remain a viable organization, the NMD has been and must continue to be flexible and responsive to changing needs.
Recently, the NMD has developed and proposed a new structure within which to describe its funding areas, activities, and resource allocation. It involves a single overall activity (the NMP) with three mission areas (Mapping Data Collection and Integration, Earth Science Information Management and Delivery, and Geographic Research and Applications), briefly described as follows:
The Division's appropriated budget for FY 1997 is about $132 million.
Reimbursements from partnerships and product sales are expected to augment
those funds by an additional $52 million.
With the continuing improvement in computer technology, costs for producing, processing, and using digital geospatial data will decrease; the use of geospatial data will expand, and new applications for digital geospatial data will be identified. GIS technology also will enable government organizations at all levels and the private sector to produce basic map data for their specific applications. The NMD will develop strategies and partnerships that will extend the utility of these data to the participants in and customers of the NMP.
The continuing revolution in technology will change the mix of NMD's
customers, their areas of interest, and their expectations for service.
The customer base for geospatial data will grow as applications drive the
demand for these data. Customer expectations concerning ease of use, variety,
and availability of customized products will increase as faster and more
efficient computers become commonplace in homes and businesses. Customers
will want data and information that they can readily integrate and manipulate
to suit each of their unique applications. The commercial availability
of geospatial data and information will grow with the increased demand
in the marketplace, and many customer demands for off-the-shelf geospatial
products will be met by the private sector. The Federal mapping sector
will focus on effective data base and inventory infrastructure to support
delivery of products and services to customers through partnerships with
the private sector. The relationship between the private sector and the
Federal mapping community will become more supportive and mutually beneficial.
We believe that customer needs will be better met through this new partnership
than they could be by either the Federal or the private sector alone.
For the NMD, a key element of success in the information age will be the ability to meet the need for current, accurate data. As the Federal Geographic Data Committee (FGDC) draft report, 1996 Strategic Plan for the National Spatial Data Infrastructure, aptly states in its discussion of the impediments to the promise of GIS technology for sharing information about location and solving community problems, "the technological barriers are falling. Computers are becoming less expensive and more widespread. Individuals and organizations are using the Internet to discuss common problems. Data remain a stubborn barrier" (emphasis added). The mission area of Mapping Data Collection and Integration will play a key role in breaking down this barrier by focusing on the development of framework data and multipurpose maps, data revision and maintenance, integration, standards development, and individually tailored support to solve societal problems. In part, as a result of technology advances that increase the production capabilities of others, the NMD will view itself as a partner with other data producers, including the private sector. The National Spatial Data Infrastructure (NSDI) concepts and components will be implemented through NMD support and leadership in framework, standards, data management, and networking.
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Information about where an object or feature is or where an event takes place often is an important factor in decision making in both the public and private sectors. Geospatial data, which identify the geographic location and characteristics of natural or constructed features and boundaries referenced to the Earth, provide a unique context for integrating otherwise disparate observations and for evaluating competing options. Factors of location, distance, pathways, and other spatial relations often must be considered when making decisions about economic ventures, resources management, environmental and health concerns, and responses to emergencies. Public and private sector organizations have realized the usefulness of spatial data in their activities. The Nation spends billions of dollars annually on the collection, management, and dissemination of spatial data. Advances in computer techniques to collect and process spatial data, together with decreasing costs for acquiring these technologies, help organizations using spatial data to do so more efficiently and effectively; such advances also entice other organizations to use spatial data for the first time. Technologies such as the Internet and the World Wide Web enable organizations to make their information more widely available and to locate data produced by others. The NSDI facilitates data sharing by organizing and providing a structure of relationships between producers and users of spatial data. By participating in the NSDI, Federal, State, regional, and local government agencies, companies, and nonprofit organizations can cooperate to develop consistent, reliable means to share spatial data. Executive Order 12906, "Coordinating Geographic Data Acquisition and Access: The National Spatial Data Infrastructure," formalized Federal participation in initial efforts to implement the NSDI. Instructions in this order are that Federal agencies will work with non-Federal organizations to develop the NSDI, will document their spatial data and make this documentation available to the public, and will make plans to provide public access to their spatial data. This executive order also instructs agencies to lead in the development of standards. The USGS has responsibilities for standards related to base cartographic and geologic information and shares responsibilities for developing standards for water information. By participating and encouraging others to participate in the NSDI, the USGS can realize several opportunities for carrying out its mission. Making the USGS data available through the NSDI increases the opportunities for these data to be used in decisions made at the local, regional, national, and global scales, and it helps to increase the relevance of USGS activities. Through the NSDI, the USGS can locate data produced by others that can supplement the USGS data collection efforts, and the USGS can identify organizations that are candidates for collaborative data collection and use. |
Increasing emphasis will be given to providing information about and access to digital geospatial data through the USGS node of the National Geospatial Data Clearinghouse. In the future, a USGS-wide integrated information strategy will efficiently manage all USGS geoscience and bioscience data and information. Access to geospatial data, products, and services through comprehensive online indexing, ordering, and distribution mechanisms, and comprehensive customer and technical support operations will be realities. The NMD will have an appropriate management and physical infrastructure to deal adequately with very large stores of image data. Remotely sensed data will be recognized as a fundamental source of earth science information; thus, more attention must be paid to developing and managing image data bases.
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The USGS has traditionally been a user and a manager of satellite land remote sensing data. Nearly 25 years of information extraction from satellite remote sensing data have demonstrated the broad utility of these data. Information derived from Landsat data, for example, has permitted scientists and program managers to study more effectively problems related to our water, energy, and mineral resources, to understand the effects of natural disasters, to protect the quality of the environment, and to contribute to the Nation's economic and physical development. Central to the application of these data is the reliable collection, maintenance, and distribution of a record of the Earth's surface; a record, moreover, that is comprehensive, historical, permanent, and impartial. Over the past three decades, our Nation has invested more than $3 billion for the collection and distribution of Landsat Earth observation data. In 1992, the Congress assigned to the Department of the Interior (DOI) long-term responsibility for managing, preserving, and providing access to these and other land remote sensing data (Public Law 102-555). Through Presidential Decision Directive/NSTC-3 in 1994 and the National Space Policy in 1996, the President reaffirmed DOI's role by directing it to "maintain a national archive of land remote sensing data and other surface data, making such data available to U.S. Government and other users." In turn, the DOI delegated to the USGS the responsibility for the National Satellite Land Remote Sensing Data Archive (NSLRSDA). During the next decade, the USGS will be responsible for managing, maintaining, and providing access to an extensive and continually increasing archive of satellite remote sensing data. The archive's content will grow from the 130 terabytes of digital satellite data today to more than 1,300 terabytes by 2003. User demand for these data is expected to grow significantly. The need to expand, modernize, and maintain NSLRSDA systems for archiving, preserving, accessing, and distributing data and information is essential. Society also has the expectation that in an information age, data and products should be delivered quickly and efficiently. Participation in the NSDI, Mission-to-Planet-Earth, civilian applications of classified data, and other interdisciplinary earth science investigations highlight the critical need for systems to store and manage diverse data sets. Appropriate financial and human resources, as well as partnerships with external organizations that can provide information management expertise, will enable the Survey to fulfill this responsibility. |
The information society will value the interpretation and application
of geographic data and information, emphasizing tools for applying data
in many ways to society's problems and needs. The NMD's Geographic Research
and Applications activities will assist the government and society in solving
problems through the application and analysis of geospatial data. Research,
development, and application tasks will occur through collaboration with
a wide variety of Federal, State, local, academic, and private industry
partners. A significant portion of the geographic research and applications
resources will apply geospatial analysis to multidisciplinary studies with
other USGS Divisions and other Federal and State agencies. The NMD also
will increase the number of resources devoted to technical assistance and
product support. Geographic Research and Applications will be strengthened
and emphasized as appropriate to accomplish this enhanced mission. The
outcome of these efforts will strengthen the NMD as the center of excellence
within the USGS for geographic and cartographic sciences.
In spite of these general trends in the Federal sector, both the direct appropriated and reimbursable funds for Mapping Data Collection and Integration have consistently and significantly grown during the last decade. This growth is due to a number of interrelated factors. There has been a dramatic increase in the successful use of GIS technology to solve societal problems across both the public and private sectors. The breadth of these applications has created growth in both the appreciation of and demand for geospatial data. The data production contracting, standards, leveraging, and data sharing strategies implemented in the NMD have placed our organization at the forefront of finding cost-effective solutions to the burgeoning demand for geospatial data. Targeted data production programs based on data sharing, like the Department of the Interior (DOI) high priority lands initiative, have successfully demonstrated significant return on investment benefits using the NMD strategies. Growth in financial and programmatic support for NMD programs from the Administration, Congress, and data users and producers has been strong and continuous because such support saves taxpayer dollars and maximizes the benefit for all partners. This trend is expected to continue, and the NMD will continue to use and enhance the strategies that have brought us success in this mission area.
The Earth Science Information Management and Delivery and the Geographic Research and Applications mission areas will explore and, where possible, develop parallel strategies. In addition, to increase reimbursable funding, the NMD will require more frequent customer contact and distributed authority for entering into agreements. In the future, the NMD will become more flexible, able to devise field site strategies within national guidelines for responding to customer requirements. Authority will be delegated to field centers to initiate and develop agreements and partnerships with cooperators, and retention of reimbursable funding by the originating field center will provide incentives to be proactive.
The NMD's permanent government workforce will probably continue to decline
in numbers, emphasizing the need for more term and temporary appointments
to deal with fluctuating workloads and changing program emphasis. Employees
and (or) contractors with skills in computer science, geography, and GIS's
will be hired more frequently to support the changing program emphasis.
Contracts and contract staffs will be required options for meeting staffing
needs. The NMD will have representatives in most States or regions, and
field operations will be a major influence on the direction and priorities
of programs under the guidelines and principles established by headquarters.
Distributed field activities will result in opportunities to meet customer needs more adequately through regional consortia with State and local government entities. An effective communications network, both within the organization and externally with other cooperators and users, will be of paramount importance.
| USGS/NMP Change Over Time | Then | Now | Future |
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| Funding | Appropriated funds for Federal map requirements | Bilateral Federal/State co-ops - cost share | Multilateral consortia - innovative partnerships |
| Producer | Federal primary producer | Federal/State - work share | Select framework categories - Federal integrator, data producer of last resort |
| Production | Largely in-house with contractor support | Standards development: in-house and contract | Largely contractor with appropriate in-house capacity; Quality Assurance/Quality Control |
| Federal Skill Mix | Manual cartography | Digital cartography | Coordinator, integrator, contracting technical rep, QA/QC, standards, GIS |
| Product | Quad-based paper maps | Quad-based paper maps and digital map information | User defined content and media |
| Product Delivery | Two warehouses, USGS ESIC's | One warehouse, Internet, USGS ESIC's | Business partners/wholesale, Internet, maps-on-demand |
| Information Access | USGS ESIC's | USGS and State ESIC's, Internet | Internet, kiosks, ESIC network |
| Cost recovery | Nominal | Full | Emerging issues |
During the next decade, the NMD will emerge as the USGS earth science information leader, managing, maintaining, and providing easy access to extensive and continually increasing volumes of data and information. Remotely sensed data archives will continue to grow, as will demand for these and other geospatial data useful for a multitude of societal applications. The need for strengthened systems for archiving, accessing, and distributing information will be a primary force driving the NMD's programs. Partnerships with external organizations that can provide expertise in information management will begin enabling the NMD to fulfill this responsibility.
The NMD will strengthen its role as the source of USGS expertise in geographic science and applications and will participate in the research and analysis of complex earth science problems that require the cooperation of multidisciplinary teams. As the use of geospatial data in solving societal problems grows, the NMD will expand product and technical applications support for NMD information, data products, and services. The NMD will expand the research and applications programs through partnerships with Federal, State, and local agencies and the private sector.
The NMD will maintain a cadre of highly qualified technical personnel
with cartographic expertise among its Federal employee workforce, both
for in-house production needs and for managing and overseeing the data
production work undertaken by the private sector. This will require professional
knowledge in cartography and computer science, as well as expertise in
contract management. The NMD's data production funding will be used within
the NMD to support production and production related activities, such as
quality assurance, standards development, and contract management. As more
of the traditional data production activities are accomplished by private
sector contractors, there will be a reduction in the numbers of NMD employees
involved directly in map and data production. However, new opportunities
for NMD employees will be created in computer science, contract management,
quality assurance, data and information management, data interpretation,
technical support, product support, research and scientific applications,
standards development, and other areas. The NMD will support training and
educational opportunities for current employees to enable them to prepare
for this changing emphasis. As the NMD identifies the specific skills and
backgrounds needed for the future, development plans will be implemented
to enable employees to take advantage of these opportunities, and resources
will be made available to support these plans.
Goal 1: The NMD has an effective workforce
to accomplish its mission.
Strategic Actions:
Goal 2: The NMD participates fully in the
development of the National Spatial Data Infrastructure.
Goal 3: The NMD makes increasing use of partnerships
with other Federal agencies, State and local governments, and academia
to accomplish its mission.
Goal 4: The NMD optimizes service to customers
and continually broadens its customer base through timely, innovative products
and effective interaction.
Goal 5: The NMD makes appropriate use of
the private sector to accomplish its mission and develops mutually beneficial
relationships throughout the private sector.
Goal 6: The NMD is widely recognized by many
audiences as a respected source of geospatial information and geographic
science.
Strategic Actions:
Goal 7: The NMD seeks more efficient business
practices and empowers field centers.
Goal 8: The NMD implements a well integrated,
long-term strategy for computer systems and technology procurement, management,
and maintenance that assures high availability of state-of-the-art systems.
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A major component of the National Spatial Data Infrastructure is the development and implementation of a national digital geospatial data framework. Although applications of digital geospatial data vary greatly, users have recurring needs for a few common themes of data. These data themes (the framework) include orthoimagery, elevation, transportation, hydrography, political and administrative boundaries, cadastral, and geodetic control. The recurring needs for these data themes are not being met consistently because of limited investment, gaps in coordination, and a lack of common approaches. As a result, important information is not available for many areas, and multiple organizations support duplicate data activities for other areas. Because no coordinated mechanism exists to maintain and manage the common data being collected by the public and private sectors, costs are higher and efficiency is reduced for individual organizations, as well as for the Nation. The purpose of the framework concept is to organize and enhance, throughout all levels of government and the private sector, the collection, maintenance, and dissemination of basic, consistent digital geospatial data. The framework will facilitate data sharing and provide a base on which an organization can accurately register and compile other themes of data or add application-specific information. Shared collection and maintenance will reduce expenditures for data collection and integration, allow organizations to focus on their primary business, expand the user base for data being collected, and increase data availability over broader geographic areas. |
Goal 11: Availability and maintenance of
basic geospatial data and products is accomplished by coordinating activities
with other producers, contracting with the private sector, and maintaining
appropriate in-house production.
Goal 12: The NMD is a national leader, providing
access to and delivery of geoscience and bioscience data and information
products, printed and digital information, and customer services.
Goal 14: The NMD is the national civilian agency leader for coordination of the access, management, and application of classified data and information.
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The U.S. Geological Survey (USGS) chairs the Civil Applications Committee (CAC), a Federal interagency committee that provides civil Federal agencies with access to classified imagery information needed to support agency missions. Established in 1968 and officially chartered in 1975 by the Office of the President, the CAC includes representatives from the Department of Agriculture, Department of Commerce, Department of Energy, Department of the Interior, Department of Transportation, Federal Emergency Management Agency, National Aeronautics and Space Administration, U.S. Army Corps of Engineers, U.S. Environmental Protection Agency, and National Science Foundation. The activities of the CAC have expanded beyond traditional mapping to include a broad spectrum of environmental and remote sensing applications. Some examples are monitoring volcanoes; detecting wild fires; responding to emergencies caused by natural disasters, such as hurricanes, earthquakes, and floods; monitoring ecosystems; and mapping wetlands. As chair of the CAC, the USGS advises users how to gain the most benefit from these data, generates custom and derived products, and aids in data dissemination. The USGS also provides special facilities for CAC member agencies in its National Civil Applications Center. |
Goal 16: The NMD conducts relevant and scientifically
excellent research in geography, cartography, information science, and
related disciplines.
Goal 17: The NMD is a leader in research
and applications that develop and apply integrated geospatial data and
understanding to a wide range of biophysical and socioeconomic models and
applications created in partnership with customers and other stakeholders
within and outside the Federal government.
The efforts of the NMD Strategic Planning Team and the NMD Senior Staff to develop and refine the NMD Strategic Plan represent a significant investment, but the hard part has just begun. Now the NMD has to use the Plan as part of a strategic planning and management process that will carry the NMD's programs forward. The goals and actions in the Plan set a strategic direction within the context of continuing resource uncertainties, programmatic and technological change, and potential opportunities. Now the NMD has to implement the long-term Plan by preparing mid-term and near-term business and programmatic guidance and developing performance measures that can be used to evaluate progress toward achieving goals. It is critical that we continually remind ourselves that strategic planning is an ongoing activity in which all of us participate. Thus, each NMD employee will have an important role in making the Plan a reality.
Additional copies of the NMD Strategic Plan are available from: