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biblioteconomia i documentaci

nmero 29desembre de 2012

ISSN 1575-5886

DL B -19 .675-1998

Facultat de Bibl ioteconomia i Documentaci

Universitat de Barcelona

inici presentaci instruccions autors subscripci arxiu cerca blok

Reuse of Public Sector Information in Spain: A solidfoundation for a promising future[Versi catalana]

EMILIO GARCIA GARCIATechnical AdvisorMinistry of Finances and Public Administrationemilio.garcia@seap.minhap.es

SALVADOR LUIS SORIANO MALDONADOTechnical AdvisorMinistry of Industry, Energy and Tourismslsoriano@minetur.es

Abstract [Resum] [Resumen ]

The reuse of public sector information is the cornerstone in the Open data and Open Government strategies. TheEuropean authorities are promoting public information reuse policies as a pillar for the digital economy and a lever fordemocratic transparency in the European Union. The genesis of the reuse of public sector information policies in Spainhas been theAporta Project , established in 2008 and coordinated by the Ministry of Finances and Public Administrationand the Ministry for Industry, Energy and Tourism of the Spanish National Government. The project since its inceptionaims to promote reuse of public sector information culture in Spain and benefits are being reaped now in the form of avibrant infomediary sector and a growing number of open data initiatives in all the government layers. A major renewal ofthe reuse of public sector information strategy in Spain was launched in 2011 following the guidelines of The EuropeaneGovernment Action Plan 2011-2015 and The Digital Agenda for Europe, the new objective is maximizing the public value

of the public sector information through its massive reusage.

1 The genesis o f an innovative policy

Beyond any discussion, the open data concept is at the heart of some of the most innovative initiatives in PublicAdministration. Easy access to public data promotes at same time accountability through transparency andeconomic growth through the development of information services by third parties.

Well before open data policies began to appear in political and economical newspapers and magazines, theEuropean Commission proposed to the European Council and the European Parliament the approval of a Directiveon the ReUse of Public Sector Information (European Commission, 2002). It was the year 2002, and the proposalwas the final milestone of a road started in the year 1999 with the Green paper on PSI in the Information Society

(European Commission, 1999). Although some parts of this paper could sound naive, especially taking intoaccount some of the current policy debates around open data and its potential business models for the public andprivate sector, it lays on the table questions that are still under discussion now:

an agreed on the definition for public sector informationthe need to provide equally rights on reuse to all the potential userthe debate about pricing regimesthe potential conflicts between the reuse of public sector information and the legal frameworks for privacyand copyright

However, this founding paper looked more worried with the access issues than with the economical value of publicsector information. A couple of years have to pass until a first intuitive economic value for public sector informationappeared, not by itself but in connection with the digital contents sector then estimated in 433 billion of Euros or5% of European Union GDP (European Commission, 2001, p. 4). Public Sector Information appears for the first

time as just another possible source of information for the digital content sector, and therefore susceptible to besold in the form of value added products and services. As "an information service based on tourist information,traffic data and/or environmental data that stops at the border will lose much of its appeal" (European Commission,2001, p. 5), the European Commission put forward the case for extending the single market concept to the field ofthe reuse of public sector information. The instrument proposed for the Commission to overcome the fragmentedpublic sector information market was a legal instrument, which main feature would be "a general right to re-use

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public sector information: whenever public sector information is generally accessible, commercial re-use should bepossible" (European Commission, 2001, p. 11). Nevertheless, the legal instrument finally adopted did not reachthat objective.

In the end, the principle of the Directive 2003/98/EC (European Union, 2003) was that "Member States shallensure that, where the re-use of documents held by public sector bodies is allowed, these documents shall be re-usable for commercial or non-commercial purposes" (European Parliament; European Council, 2003, art. 3).Plainly speaking, the Directive did not oblige to allow the reuse of public sector information but the provision ofpublic sector information in equal conditions. The Directive "built on and was without prejudice to the existingaccess regimes in the Member States" (European Union, 2003, article 1.3), in a respectful way with the copyrightand privacy issues and charges were allowed as long as "the total income from supplying and allowing re-use of

documents shall not exceed the cost of collection, production, reproduction and dissemination, together with areasonable return on investment" (European Union, 2003, article 6).

Although the Directive finally adopted was not as ambitious as initially planned by the European Commission, someMember States failed to implement its national transposition by the deadline established for 1 J uly of 20051. In thecase of Spain, the transposition of the Directive was adopted on November 2007 (Spanish Government, 2007), inthe form of the Law 37/2007 on the reuse of public sector information.

The Spanish Law establishes an ample definition of public sector information which covers not only traditionaldocuments but also data sets (Spanish Government, 2007, article 3, paragraph 2). It defines the types ofconditions under which re-use can be authorized and it sets the rules applicable to charging. Both process andconditions for re-use have to be established in a transparent and open manner (Spanish Government, 2007, article4, paragraph 3). For example, the Law foresees the possibility of making PSI freely available under no restrictions.Moreover, the Law establishes that public administrations should make re-use easier by creating lists and indexes

accessible online, with the aim to facilitate the identification of public information resources.

2 Aporta Project: Towards a culture of reusability

The approval of the Law 37/2007 by the Spanish Parliament signaled the start for the development of the reuse ofpublic sector information policies in Spain. However, it was clear from the very next day after the approval thatmaking effective the reuse of public sector information would demand more efforts than the mere adoption of anew law. The introduction of new ideas and concepts is always a complex issue in Public Administration, creatingawareness and dissemination actions are highly needed in order to have success in this task. The above reasonswere behind the launch ofAporta Project. The very name was chosen as an spearhead for the promotion of thenew culture: "Aporta" means to share in Spanish language.

The Aporta project was launched in October 2008 coordinated by Ministry of Finances and Public Administrationand the Ministry for Industry, Energy and Tourism and within the framework of the Avanza Plan, part of theNational Plan of Reforms designed by the Government to follow the Lisbon Strategy in 2000. The Avanza Plan 2

was focused on obtaining the appropriate use of the ICT, with the purpose of making successful an economicalgrowing model based on the competitiveness and productivity increase, the citizen's quality of life improvementand the social and regional equality. The OECD has remarked the Avanza Plan as a case where "a strong policyand governance framework have been the key for the success of information society policies" (OECD, 2010).

The main goal of Aporta Project was the promotion of a culture of reuse of public sector information, raisingawareness of the importance and value of public sector information and reuse among government, citizens andbusinesses. The project was based on three pillars that reinforced each other:

Foster a culture of Reuse of Public Sector InformationPave the way for the provision by the government of the existing public sector information

Promote the market of Reuse of Public Sector Information

To sum up, the project looked forward to unleash the potential of the reuse of public sector information in Spainthrough the convergence of private and public initiatives in the field, hoping to be the catalyzer of what then wasan incipient community.

The Aporta Project has combined from its start the use of online and face to face actions. One of the first stepstaken was setting up an Internet portal for the initiative (www.aporta.es), which acted as a hub for online materialrelated with the reuse of public sector information. Besides the different pieces of the legal framework in theEuropean and National level, education materials were published. Some of this material has been praised for itsusefulness and innovation by other government (The National Archives of United Kingdom, 2011) and internationalprojects (Spain takes the lead, 2009). The portal has doubled the number of visits per year, jumping from less than20.000 to 40.000. Nearly 20% of the visits are currently from outside Spain showing a growing valuation of theinitiative in the international arena. The Internet presence of the Aporta Project is complemented with the usage of

social media channels like twitter (@proyectoaporta).

Although the online activities of the Aporta Project have been behind its widespread knowledge, the promotion of acommunity requires also face to face encounters. With a first stage where the axis were workshops to showcasebest practices on open data and reuse of public data, the project evolved to organize a yearly international eventwith the participation of a mix of experts coming from the European landscape and the different government tiers in

http://www.aporta.es/https://www.planavanza.es/Paginas/Inicio.aspxhttps://www.planavanza.es/Paginas/Inicio.aspxhttp://c%7C/backups/bid/29/www.aporta.eshttp://c%7C/backups/bid/29/www.aporta.eshttps://www.planavanza.es/Paginas/Inicio.aspxhttp://www.aporta.es/

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Spain.

After three years of life, the project could be considered as an example on how to promote the reuse of publicsector information from the scratch. Nearly all of the 17 regional Spanish Governments have launched anopendata portal and there are also some important initiatives in the local level3. Although it is difficult to highlightsome of these portals in the subnational level, some of them have also obtain recognition in the international stageby themselves, as it is the case ofOpendata Euskadiand Opendata Barcelona.

The impact of Aporta Project has gone beyond the limits of the Public Sector and its outcomes are also visible inthe civic society and industry, a consequence of its closeness to both. On one hand, several NGOs have rooted inthe area of data journalism and the promotion of open data initiative, the most important the Spanish branch of Pro

Bono Publico which organizes in 2010 and 2011 an open data applications contest called Abre Datos and haspromoted transparency initiatives as the Spanish version of "Where does my money goes", Dnde van misimpuestos?. On the other hand, a vibrant infomediary sector has appeared from the thin air and its businessactivity is estimated in 550-650 million of Euros (Proyecto Aporta, 2011) equivalent to the revenues of mobileroaming services obtained by telecom operators (Comisin del Mercado de las Telecomunicaciones, 2010). Itshould be highlighted this business volume it is still far away of its full estimated potential of 2000 million of Euros(Commission of the European Communities, 2006) and its value is currently under review. After a revisit to thedefinition of an infomediary company, the economical value of the sector has been reduced and estimated in 330-550 million of Euros in 2012 (Proyecto Aporta, 2012).

By the end of 2010, it was clear that jumping to a new stage was needed. The alpha version of the Public SectorInformation Catalogue4 included in the Aporta Project portal was in the need of an evolution and the infomediarysector demanded new rules for sustain its growth. At the same time, in the European Union both the DigitalAgenda for Europe andThe European eGovernment Action Plangave an strategic value to increase the

availability of public sector information for reuse, demanding the European Union Member States to reinforce andrelaunch its policies in this field.

3 The renewal of the ReUse of PSI Strategy in Spain

On J uly 16th 2010, the Council of Ministers approved the 2011-2015 Strategy for Plan Avanza 2. This secondstage gives continuity to Plan Avanza, and it contains an update of the objectives and actions in the field of thereuse of public sector information. After the first stage where creating awareness of the strategic importance ofpublic data had been the main goal, the new objective set in the plan was maximizing the public value of the publicsector information through its massive reusage. To achieve this objective, increasing the visibility and accessibilityof public data and removing the barriers for its reusage have been addressed at an increasing pace.

After three years of the approval of the Law 37/2007, several barriers were still on place in Spain5. The mainobstacles identified were the uncertainty of which public information was reusable, a fragmented landscape ofconditions for reuse of public data, the lack of a clear assignation of roles and responsibilities on the provisionchain of information in public entities and the scarce use of open standards and machine-readable formats in theinformation available. In order to overcome these barriers, the adoption of a Royal Decree to spell out theimplementations details of the law was launched in December 2010, which started with a participatory processabout a first draft of the Royal Decree. Inputs from the public and private sectors, as well as from civil society,enriched the initial text and the result was one of the most advanced legal frameworks on the matter, including anearly alignment with some aspects of the proposal for the renewal of the Directive 2003/98/EC launched by theEuropean Commission a year later.

The new piece of legal framework was adopted as the "Royal Decree 1495/2011 implementing Law 37/2007 of 16November, on re-use of public sector information, for the national public sector"6. The main goal of the RoyalDecree is to fulfill the goal that "data should be open and available by default and exceptions should be justified"

.In this regard, the Royal Decree regulates the following aspects:

It details the obligations of administrations and public sector bodies in promoting re-use:Re-use of public sector information is authorized in general, provided that their access is not restrictedby access rules (information is reusable as a default rule).Administrations and public sector bodies will proactively inform on re-usable information they possess.Officers responsible for re-use are identified in each ministerial department, agency or public body,establishing also a set of minimum functions.Relevant coordination mechanisms are established in the field of the Spanish National Government.

Public Sector Information Catalogue:Legal support is given to the existing Public Sector Information CatalogueAdministrations and public sector bodies will be responsible for keeping the Catalogue up to date.

Regulation of re-use modalitiesThe general (and default) rule is the provision of re-use under a limited number of general conditionsestablished in the decree. The decree includes a legal notice template setting out the generalconditions for re-use (as default this open data license applies).However, the decree provides some flexibility for those administrations and public sector bodies whichneed to establish additional specific conditions when deemed necessary.

http://opendata.euskadi.net/http://opendata.euskadi.net/http://w20.bcn.cat/opendata/http://blog.probp.org/http://blog.probp.org/http://abredatos.es/http://dondevanmisimpuestos.es/http://dondevanmisimpuestos.es/http://ec.europa.eu/digital-agenda/http://ec.europa.eu/digital-agenda/https://ec.europa.eu/digital-agenda/en/european-egovernment-action-plan-2011-2015https://ec.europa.eu/digital-agenda/en/european-egovernment-action-plan-2011-2015https://ec.europa.eu/digital-agenda/en/european-egovernment-action-plan-2011-2015http://ec.europa.eu/digital-agenda/http://ec.europa.eu/digital-agenda/http://dondevanmisimpuestos.es/http://dondevanmisimpuestos.es/http://abredatos.es/http://blog.probp.org/http://blog.probp.org/http://w20.bcn.cat/opendata/http://opendata.euskadi.net/

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Regulation of conditions applicable to the re-use of information subject to intellectual property rights or whichcontain personal data.

Intellectual property rights are licensed as a default rule and are streamlined with the re-usemodalities established in the decree (this is part of the default open data license).Specific rules are established for those documents which contain personal data so as to ensure theprotection of personal data and privacy.

As provided in the Law 37/2007, the provisions concerning the re-use of public sector information do not changethe rules governing access to administrative documents enshrined in Spanish legal system, but provide addedvalue to the right of access contemplating the basic regulatory system for re-use by others of information held bythe public sector for commercial or noncommercial ends, in a framework of fair competition, regulating theminimum conditions for a second level of information processing that is generated by public bodies.

However, maximizing the public value of public sector information requires not only removing the barriers for itsreuse, it demands in the first place making this information visible and accessible. This is the objective of the newPublic Sector Information Catalogue datos.gob.es, which has its legal base in the Royal Decree 1495/2011. Whatis more, cooperation in feeding and updating the catalogue is mandatory for all public sector bodies anddepartments belonging to the state public sector according to Royal Decree 1495/2007.

The portal datos.gob.es is the evolution of the web site initially developed for Aporta Project and its beta versionwas launched in October 2011. However, it offers a more attractive design7 and adds new tools for promotion,Web 2.0 participation and awareness on the benefits of reusing. Thanks to these functions, users can easily sharethe released data in datos.gob.es, the datasets from the Catalogue, the sample applications and latest news aboutPSI world. This design has been awarded by the EU LAPSI project as the most user friendly design of a PublicSector Information portal in J anuary 2011 (Futia, 2012).

The portal datos.gob.es fulfils all relevant international requirements on design, accessibility, usability and websecurity. It includes general features from the Web Architecture and the One Web. It also follows W3Crecommendations on open data publishing for governments and it is based on standard technologies XHTML andCSS. The software platform chosen for its implementation was Drupal as CMS and Virtuozzo as its semanticplatform.8

Both, the new rules included in the Royal Decree 1495/2011 and the renewed Catalogue of Public SectorInformation, provide a solid foundation for an explosion on the reuse of public data in Spain.

4 Looking forward to the future

As a Member State of the European Union, the future of the reuse of public sector information policies in Spain isheavily influenced by the policies and legal proposals designed by the European Commission. However, thissituation neither implies a passive attitude from the Spanish authorities nor a wait-and-see what is proposed fromBrussels. Spanish Government maintain in the eGovernment area, in general, and the reuse of public data field, inparticular a continuous early alignment with the European Union policies, underpinned in the active participation inthe working groups set by the Commission and the Council, pushing in these fora for the acceptance of its ownbest practices.

Traces of the early alignment of the Spanish policies with the EU policies could be found in the recent proposal ofamending of Directive 2003/98/EC from the European Commission (European Commission, 2011b). This proposalwas published in December 2011, and among the new features highlighted by the European Commission in itspress release (European Commission, 2011a) was:

All public data that is not covered by one of the exceptions will become re-usable. Thus, the Directive

creates a genuine right to re-use public information, absent from the original Directive;The general rule for charging will be that public sector bodies can charge at maximum the marginal cost fordisseminating the information. In exceptional cases only, full cost recovery (plus a reasonable return oninvestment) will remain possible.Data should be made available in machine-readable formats where possible;There will be independent supervision of the implementation of the rules in all the Member States.

All except the last one were already part of the Spanish Legal framework after the adoption of the Royal Decree1495/2011.

The advanced position of Spain in the field of the reuse of public sector information policies reinforces also thestrength of the Spanish open data community. Apart from the growing participation of members of the communityin international events, a clear sign of this strength has been the campaign for a single open data license in theEuropean Union. Spurred by the definition in the Royal Decree of a single license (legal notice) for the reuse of

public sector information, a group of open data activists called in February 2012 for the inclusion of the sameprovision in the revision of the EU Directive9. Through the use of different blogs and the twitter hashtag#1ODataLicenseEU, the open data activists managed to collect online10 support from different personalities in theEU11. By the end of the month, the Commissar Neelie Kroes welcomed the initiative in her blog and announcedthe future development of guidelines for licensing open government data in Europe.

http://datos.gob.es/datos/http://datos.gob.es/datos/http://datos.gob.es/datos/http://datos.gob.es/datos/

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Nevertheless, more efforts need to be done in order to reap all the benefits of the open data momentum in Spain.2012 will be the critical year in the implementation of the Royal Decree 1495/2011 and a close monitoring of theadvances should be done in order to make its promises a reality. The recent incorporation of Spain to theOpenGovernment Partnership it is also a clear sign of the Spanish Government with the Open Data movement.Beyond 2012, the transposition of the amendment of the EU Directive will provide a renewed impulse.

The economic benefits of reuse of public sector information policies and its contribution to a more transparentgovernment are at hand in Spain.

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Proyecto Aporta. Characterization study of the infomediary sector in Spain. Proyecto Aporta, J une 2011,. [Accessed:04/11/2012].

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Proyecto Aporta. Characterization study of the infomediary sector in Spain. Proyecto Aporta, J une 2012,.[Accessed: 04/11/2012].

Spain takes the lead. ePSI Platform, European Public Sector Information Platform, J une 2009.. [Accessed: 04/11/2012].

Spanish Government (2007). Ley 37/2007, de 16 de noviembre, sobre reutilizacin de la informacin del sectorpblico. BOE, 17/11/2007, .[Accessed: 04/11/2012]. (Spanish Government Official Gazette, Text in Spanish Language).

Received: 08/10/2012. Accepted: 04/11/2012.

Notes

1 The complete transposition of the Directive 2003/98/EC in the EU Member States did not finish until May 2008. See:. [Accessed: 04/11/2012].

2Avanza means in Spanish language going beyond. [Accessed: 04/11/2012].

3 A collection of Open Data initiatives in Spanish Regional and Local Governments is available at:. [Accessed: 04/11/2012].

4 This alpha versin was launched during the Spanish Presidency of European Union in March 2010.

5 An analysis of these barriers is contained in Spanish (Characterization study of the infomediary sector in Spain, 2011)and European studies (European Commission, 2009).

6 The non official English translation of the Royal Decree 1495/2011 is available in

7 The design of the portal was the result of the collaboration with members of the civic society ( Pro Bono Publico) and theindustry (ASEDIE, association for the companies that work in the infomediary sector).

8 Following a policy of openness and sharing all its results, the technical details of the platform used are available in theportal. See: http://datos.gob.es/datos/?q=node/1517 (Text in Spanish).

9 The call for a single open data license in the EU is still available at several blogs, see for instance.

10 The support for the initiative were collected in the platform Actuable.es, now part of change.org. They managed tocollect more than 600 online signatures in one month. http://actuable.es/peticiones/say-to-neeliekroeseu-we-want-single-opendata-licence-in-the>. [Accessed: 04/11/2012].

11 Among the supporters of the initiative were J ordi Sevilla (former Spanish Minister of Public Administrations), Patxi Lopez(President of the Basque Country Regional Government) and Carlos Martinez Gorriarn (Member of the Spanish NationalParliament). A complete lists of the more relevant supporters could be found at . [Accessed: 04/11/2012].

Facultat de Biblioteconomia i DocumentaciUniversitat de BarcelonaBarcelona, desembre de 2012http://www.ub.edu/biblio Comentaris

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