Intra-governmental Group

on Geographic Information

The Principles of Good

Data Management

The Principles of Good

Data Management
2nd Edition

July 2005
Office of the Deputy Prime Minister: London

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Acknowledgements
This guide, version 2.0, dated June 2005, was prepared by the IGGI Working Group
on Data Management and Standards. Thanks to Jeremy Giles, British Geological
Survey and his cross-departmental team for their considerable efforts in putting
together this guide. Thanks also to David Lowe, British Geological Survey, for
editing the document.

The Principles of Good Data Management

FOREWORD
By Philip White, IGGI Chairman
The Good Data Management booklet was originally produced 2002
as part of IGGIs commitment to encourage best practice when
dealing with government geographic information. Recognising that
the environment is constantly evolving, the guide has been revised to
take account of current best practice, recent developments and reflect
key legislation. In recent years, there has been an increased emphasis
on facilitating data sharing both within and between organisations.
The principle of collect once, use many times is well established
as a concept but can only be achieved with data management. This
booklet complements The Principles of Metadata Management also
published by IGGI.
The booklet provides best practice guidance for those responsible for
managing data of a geographic nature. Specifically, it considers the
benefits, drivers, principles and mechanisms needed for good data
management.
This guide helps ensure that processes are in place for initial input
and maintenance of reliable metadata for retrieval through ODPMs
Maps on Tap and the gigateway Data Locator. If the metadata
policies recommended in this leaflet are followed, users can expect
consistency in the data they are using and exchanging with their
colleagues throughout central government.
I would like to thank the members of the group chaired by Jeremy
Giles from British Geological Survey for their hard work and the
commitment involved in completing this guide.

The Principles of Good Data Management

The Principles of Good Data Management

CONTENTS
1

Purpose of this guide

What is Data Management?

Why do we need to manage our data?

Key drivers for improved Data Management

Benefits of good Data Management

10

Benefits to Data Suppliers

Benefits to Data Brokers/Intermediaries
Benefits to users and customers

10
10
11

Principles of Good Data Management

12

Avoid re-collecting data

Data lifecycle control
Data policy
Data ownership
Metadata
Data quality

12
12
13
13
14
14

Establishing a Data Policy

17

Data acquisition
Data care Stewardship
Data use and exchange
Review

17
17
17
18

The Principles of Good Data Management

Implementation key roles

19

Data Management Champion

Data Manager
Data Stewards

19
19
19

Further guidance

21

Glossary of Terms

22

10

World Wide Web URLs

24

The Principles of Good Data Management

Purpose of this guide

This guide provides general guidance on the management of data.

The guide has been produced for those responsible for geographic
information, although the principles are equally relevant to other
types of government information.
Government departments and agencies collect, generate, store and
use large amounts of data that have been obtained at considerable
cost. Much of this data is geographical in that they are referenced to
geographical locations, such as points, lines or areas; e.g. post codes.
The importance of good Data Management has become increasingly
recognized over recent years and a body of legislation reflects this
change in attitude. Key elements of the relevant legislation include:

The Freedom of Information Act 20001

The Environmental Information Regulations2

The Human Rights Act 19983

The Data Protection Act 19984

The Public Records Act 19585

The European Commission is also having greater impact, as

INSPIRE and the Directive on Public Sector Information
demonstrate. These and other drivers mean that Data Management,
and the associated activity of records management, need to be given
priority by public bodies.

The Principles of Good Data Management

What is Data Management?

Data Management is a group of activities relating to the planning,

development, implementation
and administration of systems for the acquisition, storage, security,
retrieval, dissemination, archiving and disposal of data. Such systems
are commonly digital, but the term equally applies to paper-based
systems where the term records management is commonly used. The
term embraces all forms of data, whether these datasets are simple
paper forms, the contents of relational databases, multi-media
datasets such as images, or scientific data such as seismic records of
the UK land mass.
The management of geographic data is in many ways no different to
the management of other types of data. However, it is important to
recognise that there may be geography-specific issues that need
careful thought as part of Data Management activities; for example,
ensuring that any geographic identifiers used are appropriate and
resilient. Bearing in mind that one of the strengths of geographic
data is the ability to link seemingly disparate pieces of information,
it is absolutely critical to ensure that the chosen geographic
identifiers allow this.
Key Data Management activities include:

Data Policy development;

Data Ownership;
Metadata Compilation;
Data Lifecycle Control;
Data Quality; and
Data Access and Dissemination.

The Principles of Good Data Management

This guide covers only the key aspects of Data Management.

Extensive additional advice is now available from The National
Archives6, The Department for Constitutional Affairs7 and
UKgovtalk8.

The Principles of Good Data Management

Why do we need to manage

our data?

Government owns huge amounts of irreplaceable Geographic

Information, potentially of use to a wide range of bodies, and there
are increasing pressures on departments/agencies to manage these
data properly. Examples of these pressures are identified below.

Key drivers for improved Data Management

The Freedom of Information (FoI) Act 2000 came into force in
January 2005. General guidance on FoI is provided by The
Department for Constitutional Affairs9 and The National Archives
(TNA)10. The FoI defines clear duties and responsibilities for all who
manage public sector information in all its forms. The Act confers
two statutory rights on applicants:

To be told whether or not the public authority holds that

information; and if so,

To have that information communicated to them.

The Act allows twenty days for a response to be prepared. This

limited time means that good Data Management practices must be in
place to ensure that public bodies can meet the requirements of the
FoI.
The FoI gives rights of access to a wide range of information.
However, rights of access to environmental information are provided
by a separate statutory regime, the Environmental Information
Regulations (EIR). The aim of the regulations, which also came into
force in January 2005, is to ensure access for the public to
environmental information to enable them to participate in decisionmaking and obtain justice in environmental matters. This is seen as
8

The Principles of Good Data Management

essential for creating transparency and building trust within

communities and between individuals and public authorities.
Guidance on EIRs is provided by TNA11.
The Human Rights Act 1998 and The Data Protection Act 1998 both
provide for the protection of personal information from inappropriate
use and the right of access to data held about the individual. These
two acts place specific duties on Data Management concerning
security and access to personal information.
Other, non-legislative drivers include:

Increasing recognition that Government data, collected at

public expense, must be properly managed in order to
realize their full potential and justify their considerable
production and maintenance costs.

Increasing pressure from customers for easier and quicker

access to the right information at little or no charge.

Interoperability between systems and services, for so long

seen as desirable, is now becoming a reality. The outputs
and credibility of such services depend heavily upon the
quality of the data provided. As the number of interoperable
services increases, so too does the requirement to have
ready access to data of known (maintained) quality.

Stronger emphasis within Government on the need to

rationalize and combine data in order to improve efficiency
and add value.

More reluctance from suppliers to provide data at affordable

prices. Stricter control is required by Data Owners over the
use of their data to safeguard their Intellectual Property
Rights (IPR) and the confidentiality of sensitive data.
9

The Principles of Good Data Management

Benefits of good Data

Management

Data Management policies and procedures ensure that data on all

media are treated as a valued resource. Implementing such policies
and procedures will give many benefits:

Benefits to Data Suppliers

An increased confidence and trust that their data will be

used according to their agreed conditions of use, without
risk to confidentiality, copyright or IPR, and in compliance
with all statutory and non-statutory obligations.

Providing a clear understanding of the use of their data,

formally documented in a Memorandum of Agreement
signed by both supplier and user.

A fair return for the use of the data they have supplied.

Benefits to Data Brokers/Intermediaries

10

Better quality, harmonized and coherent data from the use

of common definitions, including geographic references,
formats, validation processes and standard procedures.

Better care of the data holdings through the use of effective

data policies and best practice guidance.

Better control over the data by the clear definition and use
of the procedures for the care of data.

The Principles of Good Data Management

Improved knowledge and understanding of data holdings,

their availability, interpretation and use, with subsequent
reduction of the risk of duplication or loss, through better
cataloguing, metadata and, in time, better access to data via
an integrated data environment.

Improved business processes, including better and more

efficient use and re-use of data, and the standardization of
datasets that are frequently used by different parts of an
organization.

Increased confidence that the organization complies with

statutory and non-statutory obligations, by the regular use
of centrally coordinated, frequently updated guidance, codes
of practice and training on legal, contractual and other
obligations.

Better control over access to data, both for internal and

bona fide external customers, resulting from better data
organization and maintenance following defined policies on
release, disclosure control and data security.

More sensible and consistent data charges and conditions of

use, resulting from clear pricing and dissemination policies
that recognize the need for free access by appropriate
customers whilst recovering the appropriate income from
customers who seek to make commercial gain.

An increasing confidence by the customer in the quality of

the data managed and in the reliability of outputs that are
produced.

11

The Principles of Good Data Management

Benefits to users and customers

12

Improved awareness and understanding of what data are

available for current and future use, resulting from better
cataloguing and data archiving.

Improved access to data, free from unnecessary obstacles,

safeguarded from disclosure of personal information or
infringement of legal and contractual obligations.

Better quality and more timely information i.e. access to the

right information at the right time, resulting from quicker
identification of customer needs and the avoidance of
wrong or conflicting information, through the use of
effective metadata.

Better value for money, resulting from clear, fair and

consistent data charges and conditions of use, which
recognize the need for free access by the appropriate
customers.

Better exploitation of data generally, enabled by easier data

exchange and integration with other harmonized data.

Efficiency gains across government and its agencies

resulting from the use of better quality data.

The Principles of Good Data Management

Principles of Good Data

Management

Good Data Management is essential for the effective use of the

information resources of public bodies in all their forms. Section 2,
above, identified a range of key Data Management activities; these
are discussed below.
The key principles of Data Management are illustrated in Figure 1
and described in the text.

Avoid re-collecting data

The largest potential for waste in Data Management is reacquiring an
existing dataset. This has been done frequently by public and private
sector organizations and must be avoided. In the USA, Executive
Order 1290612 requires government agencies to put internal
procedures in place to ensure that they check whether other agencies
have already collected information they plan to acquire. Whereas no
equivalent instruction exists in the UK, it should be regarded as best
practice to use the gigateway13 Data Locator to search for existing
geospatial datasets before new ones are created.

Data lifecycle control

Good Data Management requires that the whole life cycle of datasets
be managed carefully. This includes:

Business justification, to ensure that thought has been given

to why new data are required rather than existing data
amended or used in new ways, how data can be specified
for maximum use including the potential to meet other
possible requirements, and why the costs of handling,
13

The Principles of Good Data Management

storing and maintaining these data are acceptable and

recoverable.

Data specification and modelling, processing, database

maintenance and security, to ensure that data will be fit for
purpose and held securely in their own databases.

Ongoing data audit, to monitor the use and continued

effectiveness of the data.

Archiving and final destruction, to ensure that data are

archived and maintained effectively until they are no longer
needed or are uneconomical to retain.

Figure 1: Key Principles of Data Management

14

The Principles of Good Data Management

Data policy
The fundamental step for any organization wishing to implement
good Data Management procedures is to define a Data Policy. The
document may have different names in different public bodies but in
each it should be a set of broad, high-level principles that form the
guiding framework within which Data Management can operate.
This is the document that is approved at senior levels in the public
body, and the senior executive who owns the policy (Data
Management Champion) manages the resources for its
implementation. Section 6 includes a model Data Policy Statement.

Data ownership
One key aspect of good Data Management is the clear identification
of the owner of the data. Normally this is the organization or group
of organizations that originally commissioned the data acquisition or
compilation and retains managerial and financial control of the data.
The Data Owner has legal rights over the dataset, the IPR and the
Copyright.
Data ownership implies the right to exploit the data, and if continued
maintenance becomes unnecessary or uneconomical, the right to
destroy them, subject to the provisions of the Public Records and
Freedom of Information acts. Ownership can relate to a data item, a
dataset or a value-added dataset. IPR can be owned at different
levels. For example, a merged or value-added dataset can be owned
by one organization, even though other organizations own the
constituent data. If the legal ownership is unclear, there are risks that
the data can be wrongly exploited, used without payment of royalty
to the owner, neglected or lost.

15

The Principles of Good Data Management

It is therefore important for Data Owners to take action to establish

and document:

The ownership, IPR and Copyright of their data so that

these can be safeguarded.

The statutory and non-statutory obligations relevant to their

business to ensure that the data are compliant.

The departmental policies for data security, disclosure

control, release, pricing and dissemination.

The agreement reached with users and customers on the

conditions of use in a signed Memorandum of Agreement,
before data are released.

Metadata
All datasets must have appropriate metadata compiled for them. At
the simplest level metadata are data about data. Metadata provide a
summary of the characteristics of a dataset. A good metadata record
enables the user of a dataset or other information resource to
understand the content of what they are reviewing, its potential value
and its limitations.
There are many metadata standards, but the ones that are most
appropriate to GI are:

16

ISO 19115:200314 (Geographic Information Metadata);

and

UK GEMINI (Geo-spatial Metadata Interoperability

Initiative)
The profile is the result of a collaboration between the
AGI15 and the e-Government Unit16. A profile is a subset of

The Principles of Good Data Management

one or several information standards that adopts elements,

structures or rules for different user communities.
Adherence to the UK GEMINI profile, which will replace
the gigateway Discovery Metadata Specifications (the
NGDF Standard) as the UKs national geospatial metadata
profile, allows for the creation of discovery metadata with
both ISO 19115 (Geographic Information Metadata) and
the national e-Government Metadata Standard (eGMS),
ensuring compliance with both.
Comprehensive advice on the compilation of metadata can be found
in the IGGI booklet entitled The Principles of Good Metadata
Management17, the second edition of which was published in
May 2004.

Data quality
Good Data Management also ensures that datasets are capable of
meeting current needs successfully and are suitable for further
exploitation. The ability to integrate data with other datasets is likely
to add value, encourage ongoing use of the data and recover the costs
of collecting the data. The creation, maintenance and development of
quality data require a clear and well-specified management regime.

Data Steward
All datasets need to be managed by a named individual referred to
here as the Data Steward; also known as dataset manager and data
custodian. A Data Steward should be given formal responsibility for
the stewardship of each major dataset. They should be accountable
for the management and care of the data holdings assigned to them,
in line with the defined data policy. Section 6 provides a list of the
responsibilities of the Data Steward.

17

The Principles of Good Data Management

Data Management Plan

The Data Steward is responsible for the development of a Data
Management Plan for each dataset under their responsibility. The
objective of the Data Management Plan is to ensure:

That the dataset is fit for the purpose for which it is

required.

That the long-term management of the dataset is considered

for potential re-use.

The individual management plans should be compliant with the local

data policy and include:

18

Scope of the plan

Link to metadata

Responsibilities

IPR and Copyright

Quality objectives

Standards (International, National and local) adopted during

compilation of the data

Staff resources required to manage the dataset

Physical resources required to manage the dataset

Long term management of the dataset

The Principles of Good Data Management

Data Management procedures

Individual datasets may require compilation of specific Data
Management procedures. These may be needed where specific
datasets require detailed operational procedures to ensure their
quality; examples of this include scientific and statistical datasets.

Data access and dissemination

Although this aspect will depend upon the business and the financial
policy of the organization, the following guidance should be
followed.

Public access to data should be provided in line with The

Freedom of Information Act, The Data Protection Act and
The Human Rights Act.

IPR and Copyright of datasets owned by public bodies must

be protected, as data should be regarded as an asset.

IPR and Copyright of third-party data must be respected.

The potential for commercial re-use and exploitation of the

dataset should be considered.

The right to use or provide access to data can be passed to

a third party, subject to agreed pricing and dissemination
policies.

Consideration should be given to the impact of European

developments such as the Public Sector Information
Directive and INSPIRE.

19

The Principles of Good Data Management

Data audit
Data Management audits are recommended to ensure that the
management environment for given datasets are being maintained.
Their purpose is to provide assurance to the Data Management
Champion that the resources expended are being used appropriately.
Audits of major datasets should be commissioned to ascertain the
level of compliance with data policies and the Data Management
plans and procedures that have been prepared.

20

The Principles of Good Data Management

Establishing a Data Policy

IGGI has prepared the following model Data Policy Statement,

which Government departments/agencies may wish to use or adapt to
meet their own Data Management needs.

Data acquisition

All projects and other activities that give rise to substantial

datasets will establish at the outset whether suitable data
already exist in a potentially usable form, or whether new
data need to be acquired.

Before projects are approved, they must establish how the

data acquired will be exploited to the full, who will be
responsible for full exploitation of the data, and how the
benefits will be maximized and shared.

Subsequent data handling and storage needs will be

considered, and plans put in place to ensure that databases
are maintained in such a way that maximum use can
subsequently be made of them.

Data care Stewardship

Databases will be managed closely, with clear responsibility

for stewardship established and individuals made
accountable for ensuring Data Management procedures are
followed.

Data will be held securely within their own database, and

adequate provision made for their long-term care.

21

The Principles of Good Data Management

All data will be validated and quality assured before being

used or archived.

Easy access will be given to data holdings, both for staff

and bona fide customers.

Data that are not legally required to be retained will not be

destroyed or put at risk without first exploring all other
possibilities and then demonstrating clearly that the costs of
retaining them cannot be justified by potential benefits, or
that the replacement cost is less than the storage costs.

Data use and exchange

22

Memoranda of Agreement will be drawn up with Users and

Customers who receive data, with respect to the subsequent
use of such data. These will include confidentiality
declarations and conditions of use.

Intellectual Property Rights will be protected in relation to

any development of information, by specifying formally any
restrictions on the use of the data in formal licensing
arrangements.

Adequate provision will be made for the widest possible

public access to data and associated metadata.

Costs will be recovered for the handling of data and

information, in line with departmental policies, which will
be made readily available.

The appropriate return will be charged when data are passed

on to other parties seeking to make commercial gain.

The Principles of Good Data Management

Review

The Data Policy will be monitored regularly and will be

modified in the light of developments (e.g. technology and
legislation) and experience. Information handling practices
will be audited so that duplication can be minimized.

23

The Principles of Good Data Management

Implementation key roles

To be successful, Data Management best practice must be

implemented across the whole organization, under the guidance of a
member of the Executive Board, i.e. the Data Management
Champion. Other key roles are the Data Manager and the Data
Stewards assigned to each key dataset.
The following list of responsibilities may help organizations to
establish these key roles and implement good Data Management
policies and procedures.

Data Management Champion

The Champion is responsible for:

Ensuring that policies on Data Management are in line with

legislation and Government Policies.

Reporting progress to the Executive Board on the

performance achieved against the targets set for the
improvement of data quality and the value gained from
effective Data Management.

In larger departments, particularly those spread over a number of

sites, a Data Management Steering Group may also be required.

Data Manager
The Data Manager may require the help of Local Data Managers to
discharge the following responsibilities:

24

Developing and maintaining the Data Policy Statement and

other corporate guidance.

The Principles of Good Data Management

Directing the development, implementation and

maintenance of the detailed data policies, standards,
procedures and guidelines across the whole organization.

Appointing and monitoring the performance of Data

Stewards.

Issuing guidance and training staff.

Ensuring that local practice in individual business areas

meets the standard set for the whole organization.

Ensuring that the organization maintains a central metadata

resource.

Data Stewards
Data Stewards are responsible for ensuring that the following
minimum standards are applied for each dataset:

The dataset must be documented in the organizations

catalogue following the standards for discovery metadata, to
enable the ownership, Intellectual Property Rights,
stewardship and accessibility to be determined.

The policy for exploiting the dataset and making it available

to third parties must be agreed and documented.

The dataset and its conditions of use must comply with all
the statutory and non-statutory obligations of the
organization.

25

The Principles of Good Data Management

26

The data must follow standard classifications and

definitions where appropriate, and must comply with all
relevant standards, codes of practice and other protocols.

The data must be fully validated and quality assured with

sufficient detailed metadata to enable their use by third
parties without reference to the originator of the data.

The data must be stored, managed and accessed in line with

agreed Data Management and Security/Confidentiality
policies.

The release/use of data by internal and external customers

must be authorized and agreement to the conditions of use
documented.

The costs and benefits of continuing to maintain the dataset

must be reviewed periodically.

The Principles of Good Data Management

Further guidance

This guide is intended to give an introduction to the principles of

good Data Management and has been prepared with the help of a
number of organizations who have already benefited from adopting
such Data Management principles.
IGGI will continue to support the use of good Data Management
principles and will, where possible, provide detailed guidance on the
website. This detailed guidance will take the form of proven
guidelines, made available by IGGI members. Comments on this
guide and on the detailed guidance are welcomed, and these can be
made to the IGGI Secretariat by e-mailing IGGI@odpm.gsi.gov.uk.

27

The Principles of Good Data Management

28

Glossary of Terms

AGI:

Association for Geographic Information.

Data Audit:

A process to demonstrate assurance that

Data Management is being undertaken to
the required level.

Data Management
Champion:

The member of the Executive who is

Corporately responsible for the Data
Management.

Data Management
Plan:

A plan for the management of an

individual dataset, compliant with the local
Data Policy.

Data Management
Procedure:

A set of detailed operational parameters for

the day-to-day management of a specific
dataset.

Data Manager:

The senior manager, reporting to the Data

Management Champion, responsible for
Data Management in an organization.

Data Owners:

Are the individuals or groups of individuals

who are held accountable, managerially
and financially, for a dataset and who have
legal ownership rights to a dataset even
though that dataset may have been
collected/collated/disseminated by another
party.

Data Policy:

A set of broad, high-level principles that

form the guiding framework within which
Data Management can operate.

The Principles of Good Data Management

Data Quality:

A set of parameters, established according

to specific local requirements and
processes, to ensure that datasets may be
seen to be fit for purpose.

Data Steward:

An individual accountable for the

management of a specific dataset or group
of datasets.

Data:

A collection of facts, concepts or

instructions in a formalized manner
suitable for communication or processing
by human beings or by computer.

Dataset:

A dataset is a collection of data that has

been compiled to serve a specific business
purpose. It may have been collected for a
specific purpose (e.g. Census data) or it
may be data previously collected for
another purpose that is being reused for a
purpose not envisaged at the time of
collection (e.g. family history research).
Datasets are the fundamental unit of Data
Management.

EIR

Environmental Information Regulations.

FoI

The Freedom of Information Act 2000.

Geographic

Data/information that is referenced in some

information (GI):

way to the earths surface whether by coordinates or by geographic identifiers

(addresses, administrative area, postcode).
29

The Principles of Good Data Management

IGGI:

The Intra-governmental Group on

Geographic Information. Its mission is to
Increase the efficiency of central
government while enabling it to meet its
responsibilities for provision of geographic
information to the general public.

IPR

Intellectual Property Rights.

Metadata:

Metadata is the term used to describe the

summary information or characteristics of
a set of data. In the area of geographic
information or information with a
geographic reference this normally means
the What, Who, Where, When and How of
the data. Thus, the only major difference
that exists between this and the many other
metadata sets being collected for libraries,
academia, professions and elsewhere is the
emphasis on the spatial component or the
Where element.

NGDF:

A now obsolete standard created by the

former National Geospatial Data
Framework. This was a name given to a
public/private initiative. Its aim was to
facilitate the unlocking of geographic
information through enabling better
awareness of data availability, improving
access to the data and integrating data by
encouraging the use of standards.
Many of the functions of the NGDF are
now fulfilled by the gigateway.

TNA
30

The National Archives.

The Principles of Good Data Management

10 World Wide Web URLs

1

www.hmso.gov.uk/acts/acts2000/20000036.htm

www.hmso.gov.uk/si/si2004/draft/20040331.htm

www.hmso.gov.uk/acts/acts1998/19980042.htm

www.hmso.gov.uk/acts/acts1998/19980029.htm

www.nationalarchives.gov.uk/policy/act/act.htm

www.nationalarchives.gov.uk/

www.dca.gov.uk/

www.govtalk.gov.uk/

www.dca.gov.uk/foi/index.htm

10 www.nationalarchives.gov.uk/policy/foi/

11 www.nationalarchives.gov.uk/policy/environmental.htm

12 www.fgdc.gov/publications/documents/geninfo/execord.html

13 www.gigateway.co.uk

14 www.iso.ch

15 www.agi.org.uk

16 e-government.cabinetoffice.gov.uk

17 www.iggi.gov.uk/publications/index.htm

31