A P P S I
Advisory Panel on Public Sector Information
Ruskin Avenue
Kew
Richmond
Surrey
TW9 4DU
secretariat@appsi.gov.uk
This report can also be accessed on the APPSI website at
http://www.appsi.gov.uk/reports/annual-report.htm
APPSI is grateful to the Cabinet Office, The National Archives, Ordnance
Survey and the Met Office for providing some of the illustrations which
have been reproduced in this report.
© Crown copyright 2008
This publication may be reproduced free of charge in any format or
medium provided that it is reproduced accurately and not used in a
misleading context. The material must be acknowledged as Crown
copyright and the title of the publication specified.
ISBN 978 0 108 50744 1
Realising the Value of Public Sector Information
Annual Report
2007
Membership
Members of APPSI during 20071
Chair
Professor Richard Susskind OBE
Deputy Chair
Peter Wienand
Expert Members
Professor Mike Batty CBE, Geospatial Information
Michael Clark, Geospatial Information
Chris Corbin, European Expert
Keith Dugmore, Statistical Information
Trevor Fenwick, Digital Content
John Gray, Digital Content
Hilary Newiss, Intellectual Property Issues
Michael Nicholson, Geospatial Information
Shane O’Neill, Digital Content
Avinash Persaud, Economist
Christopher Roper, Geospatial Information
Phillip Webb, Information and Communications Technology
Representative Members
Neil Ackroyd, Trading Funds
Michael Allen, Wales
Stefan Carlyle, Information Producers
James Eric Davies, Library and University Community
Christine Gifford, Information Management Community
Professor Hector MacQueen, Scotland
John Ponting, Trading Funds
Chris Sellers, End Users
Duncan Shiell, Trading Funds
John Thornton, Local Government
David Worlock, Digital Information Publishers
1
Membership changes throughout the year. Biographies of current
members can be accessed on the APPSI website at:
http://www.appsi.gov.uk/members/biographies.htm
Advisory Panel on Public Sector Information
Annual Report
2007
Terms of reference of APPSI
The Advisory Panel on Public Sector Information (APPSI) is a Non-Departmental
Public Body, established by the Cabinet Office in April 2003. On 31 October
2006, APPSI became a Non-Departmental Public Body of the Ministry of Justice
(then, the Department for Constitutional Affairs). APPSI’s terms of reference are
as follows:
• to advise Ministers on how to encourage and create opportunities in the
information industry for greater re-use of public sector information;
• to advise the Director of the Office of Public Sector Information and
Controller of Her Majesty’s Stationery Office about changes and
opportunities in the information industry, so that the licensing of Crown
copyright and public sector information is aligned with current and
emerging developments;
• to review and consider complaints under the Re-use of Public Sector
Information Regulations 2005 and advise on the impact of the complaints
procedures under those Regulations.
Formally, APPSI reports to Ministers annually. This is APPSI’s report for 2007.
A list of APPSI members is provided on the inside back cover.
Advisory Panel on Public Sector Information
Ruskin Avenue
Kew
Richmond
Surrey
TW9 4DU
secretariat@appsi.gov.uk
This report can also be accessed on the APPSI website at
http://www.appsi.gov.uk/reports/annual-report.htm
APPSI is grateful to the Cabinet Office, The National Archives, Ordnance Survey
and the Met Office for providing some of the illustrations which have been
reproduced in this report.
© Crown copyright 2008
This publication may be reproduced free of charge in any format or medium
provided that it is reproduced accurately and not used in a misleading context.
The material must be acknowledged as Crown copyright and the title of the
publication specified.
1. From the Chair
4
2. Highlights from 2007
6
3. Priorities during 2007
8
4. Plans for 2008
10
5. Financial Report
12
Abbreviations used in this Report:
APPSI
BERR
CUPI
FOI
HMSO
INSPIRE
MOJ
OFT
OPSI
Panel
PSB
PSI
PSI Directive
PSI Regulations
Advisory Panel on Public Sector Information
Department for Business, Enterprise and Regulatory Reform
Commercial use of public information
Freedom of Information
Her Majesty’s Stationery Office
Infrastructure for Spatial Information in Europe
Ministry of Justice
Office of Fair Trading
Office of Public Sector Information
Advisory Panel on Public Sector Information
Public sector body
Public Sector Information
EU Directive on the Re-use of Public Sector Information (2003/98)
Re-use of Public Sector Information Regulations 2005
Contents
1 From The Chair
The Advisory Panel on Public Sector Information (APPSI) was set up in 2003 to
advise Ministers and officials on the opportunities for the information industry
that flow from the greater use of public sector information (PSI). This is our
fourth annual report.
This year, we have taken a new approach. Our report is shorter than in previous
years, providing summaries rather than full accounts of various topics and
activities. We point readers who are keen for greater detail to our website –
www.appsi.gov.uk. Our policy now is to make our reports and other documents
available as soon as possible on the website; and not to delay and then
reproduce these materials in full in what was becoming an unjustifiably bulky
annual report.
2007 was a pivotal year for the UK in relation to the re-use of PSI. In turn, it has
been the busiest year yet for APPSI. Crucially, we have seen a marked increase
across central government in the level of interest and debate in the re-use of
PSI. Focal points of discussion were: the Office of Fair Trading’s report on the
commercial use of public information; the Power of Information Review,
commissioned by the Cabinet Office; the announcement by the Department
for Business, Enterprise and Regulatory Reform (BERR) and Her Majesty’s
Treasury of their invitation to Cambridge University to produce a study relating
to charging models for the provision of PSI by trading funds; and the first report
by a Review Board of APPSI, reviewing various recommendations made by the
Office of Public Sector Information.
The Guardian, in its newspaper and online, has continued to cover all of these
issues in its pages and we welcome the interchange and increase in public
awareness that this brings.
We also welcome the energy and insight of Michael Wills MP, Minister of State
for the Ministry of Justice. As the Minister to whom APPSI now reports, we have
found him receptive and engaged, and are optimistic that he will be a worthy
advocate within Government of PSI re-use.
There is much yet to achieve but robust debate, the engagement of Government,
and increased public awareness are important foundations upon which to build.
4
Annual Report
2007
Within APPSI, we have seen much change. Tragically, one of our number, Mike
Clark, passed away in June 2007. In many ways, he was our finest member. His
wisdom, good humour, and tireless work on our behalf are missed enormously.
Happier news is that we have recently recruited an exciting new group of
members: Neil Ackroyd, Chris Corbin, James Eric Davies, John Gray, Hilary Newiss,
Michael Nicholson, Shane O’Neill and Phillip Webb. They bring formidable
experience to our table. However, as new members come, then longer standing
members step down. Duncan Shiell retired in March 2007 – his balance and
experience were greatly valued. Chris Sellers left us in October 2007, and we
thank him for his good spirited contribution to our Panel. Looking ahead, David
Worlock and Trevor Fenwick are to leave APPSI in late April 2008: they have
been with us since APPSI was set up in 2003 and have brought enormous
expertise and gravitas to APPSI.
There are changes afoot also with the APPSI Secretariat. This month, we say
farewell to Andrew Eeles, who has provided us with solid support for over two
years. And we look forward to welcoming his successor, Grazia Zaffuto, who
comes to us from the Cabinet Office.
After five years in the chair, I have decided to step down in April 2008. This,
therefore, is my final annual report. It has been a privilege to lead APPSI. I
continue to believe that PSI is of immense economic and social significance to
the UK; and it has been a pleasure to play a role in the early days of our Panel.
With all my sincerity and goodwill, I thank everyone with whom I have worked
as Chair of APPSI – members, officials from the Office of Public Sector
Information and The National Archives, Ministers, and the extended community
of individuals and organisations who are committed to the exploitation of PSI. I
extend my gratitude, in particular, to two individuals. The first is Peter Wienand,
Deputy Chair of APPSI and now a firm friend, who has been wonderfully
supportive to me – balanced, expert, unflappable and wise. The second is Carol
Tullo, the Director of the Office of Public Sector Information, who has, with
enormous effect, begun a transformation in relation to PSI that will have impact
on the UK for many years to come.
Finally, it is my very great pleasure to offer my best wishes to my successor –
Professor David Rhind. I am confident that, under his leadership, APPSI will
thrive over the coming years and continue to play a pivotal role in advising and
influencing Ministers and officials.
Professor Richard Susskind OBE
Chair
11 April 2008
5
2 Highlights from 2007
The following list summarises the main activities of APPSI during 2007.
• Extraordinary APPSI meeting regarding OFT CUPI Study – January 2007
• Publication of 2006 Annual Report – January 2007
• Chair: presentation to Knowledge Council – February 2007
• Submission of APPSI’s response to the OFT CUPI Study – February 2007
• Chair and Deputy Chair: meeting with Lord Chancellor – March 2007
• Chair: radio interview on PSI on Law in Action – March 2007
• Submission of note on PSI strategy to Lord Chancellor – March 2007
• Publication of APPSI Review Board Report in relation to requests by
Intelligent Addressing and Ordnance Survey to review recommendations
in OPSI’s report of July 2006 – April 2007
• Chair: meeting with Prime Minister’s Strategy Unit regarding “The Power
of Information Review” – May 2007
• Chair: meeting with Tom Steinberg – June 2007
• 14th APPSI meeting – June 2007
• Chair and Deputy Chair: meeting with HM Treasury – June 2007
• Chair and Deputy Chair: meeting with Chief Executive, The National
Archives, and Director, Office of Public Sector Information – June 2007
• Submission to HM Treasury of paper by Expert Member on Economics
entitled, “A Short Note on Analysing the Provision and Value of Public Sector
Information” – June 2007
• Submission of observations on “The Power of Information” Report to the
Lord Chancellor – June 2007
• Chair: meeting with Director, Prime Minister’s Strategy Unit – June 2007
6
Annual Report
2007
• Chair: meeting with Director, Office of Public Sector Information
– August 2007
• Chair: meeting with Chief Executive, The National Archives
– September 2007
• Chair: meeting with Director, Office of Public Sector Information
– September 2007
• Chair: meeting with Permanent Secretary, Ministry of Justice
– September 2007
• Chair and Deputy Chair: meeting with Minister of State, Ministry of Justice
– October 2007
• Submission to Ministers of paper entitled, “The Need for a Government
Strategy on the Re-use of Public Sector Information” – October 2007
• 15th APPSI meeting – October 2007
• Deputy Chair: presentation at ePSIplus National Meeting – October 2007
• 4th annual APPSI seminar – November 2007
• Chair: presentation at Locus Association Seminar – November 2007
• Chair: meeting with Chairman of Kable Conference on Public Sector
Information and Data Management – December 2007
• Chair: meeting with Permanent Secretary, Ministry of Justice
– December 2007
• Publication of paper by APPSI members, ‘Undervaluing the value of public
sector information’ (see www.publicservice.co.uk) – December 2007
• 16th APPSI meeting – December 2007
Further details of many of these activities are laid out in the remainder of this
report and on the APPSI website, at www.appsi.gov.uk
7
3 Priorities during 2007
Over and above APPSI’s ongoing responsibilities (increasing awareness of the
benefits of the re-use of PSI; holding regular Panel meetings; briefing senior
politicians and officials), the Panel pursued a range of priority initiatives during
2007, as outlined below.
The merger of The National Archives and OPSI
In last year’s annual report, we said that, in 2007, we would monitor the impact
of the merger between The National Archives and the Office of Public Sector
Information. While we were generally supportive, we had expressed reservations
about the merger in our 2006 report. Our main concern was that this machinery
of government change might result in a reduction of Government focus on the
re-use of PSI. In the event, we are pleased to report that, in our view, the merger
has been a success and has in fact helped increase rather than diminish the
level of public sector interest in PSI. The National Archives is steadily emerging
as a focal point for public information policy and, in turn, OPSI is now better
positioned than in the past to promote the re-use of PSI.
Response to OFT’s CUPI study
In February, APPSI formally responded to the important market study into the
commercial use of public information, conducted by the Office of Fair Trading
and published in December 2006. APPSI warmly welcomed the study and
strongly supported the majority of OFT’s findings and recommendations.
However, we expressed concern that the study considerably understated the
actual and potential value of public sector information to the UK economy and,
in so doing, could discourage the Government and public sector bodies from
exploiting this rich resource to the full. See www.appsi.gov.uk/reports/
responses-to-consultations.htm
8
Review Board of APPSI
In April, for the first time, a Review Board of APPSI published a report under the
Re-use of Public Sector Information Regulations 2005. It related to requests by
Intelligent Addressing Limited and Ordnance Survey to review various
recommendations made by the Office of Public Sector Information. After much
deliberation, the Board found that a third party owned intellectual property
rights in the PSI in question; that its supply was not part of the public task of
Ordnance Survey; and consequently that it fell outside the scope of the
Regulations. It followed for the Board that it had no power under the Regulations
to make recommendations in relation to the requests for review. The Board
Annual Report
2007
noted explicitly that it expected many actual and potential re-users of PSI would
be concerned about the scope of the Regulations, as interpreted in the APPSI
report. Accordingly, the Board recommended that the Government, as a matter
of priority, should re-assess the extent to which the Regulations and Government
policy on PSI are aligned and, if there is not full alignment, then the Regulations
should be amended. See www.appsi.gov.uk/review-board/reports.htm
Power of Information Review
In June, APPSI wrote a letter of advice to Lord Falconer, the then Lord Chancellor,
in relation to the Power of Information Review, as commissioned by the Cabinet
Office and authored by Ed Mayo and Tom Steinberg. We welcomed the review
as an important contribution to the growing national debate about how the UK
economy might best exploit PSI. We noted that the review was limited in scope,
we endorsed the vital distinction made by Mayo and Steinberg between the
direct value and the commercial value of PSI, and we supported calls for a
fundamental review of the costs and benefits of the trading fund charging
model for the re-use of PSI.See http://www.appsi.gov.uk/ministers/observationspower-of-information-report.pdf
Briefing to HM Treasury
Also in June, APPSI’s Expert Member on Economics submitted a paper to HM
Treasury entitled, “A Short Note on Analysing the Provision and Value of Public
Sector Information”. This was in response to a request by HM Treasury, who were
preparing at that time to commission a study relating to models for the provision
of PSI by trading funds. (This evolved into the study conducted by Cambridge
University, as noted in the following section.) APPSI’s briefing noted that the
essential problem of estimating the value of PSI and its optimum pricing and
distribution is that PSI is a cross between a “public good” or a “network good”.
Public goods or network goods are both very hard to value. See www.appsi.gov.
uk/ministers/index.htm
Note to Ministers on PSI Strategy
In October, APPSI prepared a paper, “The Need for a Government Strategy on
the Re-Use of Public Sector Information”. This was written primarily for
Ministers with a direct interest in or responsibility for the re-use of public sector
information. It considered why and how the Government should formulate an
explicit strategy for the re-use of PSI. It identified current obstacles to progress
and provided a ten-point outline for a Government PSI strategy that would
address the short term (the next 12 months) as well as the medium term (the
next 3 years or so). See www.appsi.gov.uk/ministers/index.htm
Fourth annual seminar
In November 2007, APPSI held its fourth annual seminar. Once again, this was
hosted by the Oxford Internet Institute. In the first part of the seminar, we
explored the relevance of Web 2.0 for the re-use of PSI, noting the growing
trend for end-users to generate content on the Internet. It was thought that this
was likely to be a new and further dimension to PSI – end-users themselves
directly re-purposing and adding value to PSI. In the second part of the day, our
focus turned to the EC’s intended review, in 2008, of the impact so far of the EU
Directive on the Re-use of Public Sector Information. This helped shape APPSI’s
thinking about how we should formally contribute to the EC’s review. See www.
appsi.gov.uk/meetings.htm
9
4 Plans for 2008
Looking forward to 2008, it is clear that APPSI faces another busy year.
Subject to the views of our new Chair, our intention is to focus on the projects
described below.
Submission of review of PSI Directive to the European Commission
In the course of 2008, the European Commission is reviewing the impact of the
EU Directive on the Re-use of Public Sector Information. As a contribution to this
review, APPSI intends to submit a report to the EC, providing our views on the
application of the Directive, specifically in the UK. We will consider the practical
(and in some cases innovative) steps taken by OPSI to ensure that this important
piece of legislation is recognised, understood and put into practice. This
submission will be a major priority for APPSI in the coming months.
Response to Cambridge study
While this annual report was in an advanced stage of production, an important
study by Cambridge University was published, on 26 February 2008. Entitled
“Models of Public Sector Information Provision via Trading Funds”, this was
commissioned jointly, in July 2007, by BERR and HM Treasury. APPSI is currently
examining the study and our formal response will be an important task for 2008.
APPSI can already confirm, however, that we welcome the tone and rigour of
the Cambridge study – it is the kind of detailed and systematic economic
analysis of trading funds and PSI re-use that we have been recommending since
2003; and we hope this represents the beginning of a new era of open and
sophisticated thinking about the economics of PSI.
Responses to consultations
We will continue to hold ourselves in readiness to respond to any consultation
documents that appear where these address issues that are of direct relevance
to our remit. By the time this report is published, we should already have
responded to the Data Sharing Review and to the 30-year Rule Review.
Revision of website
We have been conscious for some time that our website would benefit from a
considerable upgrade. We are committed to making a series of substantive
improvements during 2008 and will monitor the impact of these changes on
the volumes of traffic.
10
Annual Report
2007
Briefings to Minister
We intend, more frequently than we have in the past, to provide practical
briefings to our Minister at the Ministry of Justice. These will cover key issues
such as evidence, statistics and data relating to the impact of PSI; the governance
of PSI and principles underpinning its re-use; the enforcement of the PSI
Regulations; models and case studies clarifying the economics of PSI; the
findings of ongoing horizon scanning by APPSI; and the adequacy and scope of
information management activities across the public sector.
Monitoring impact of major reports
While APPSI welcomes the various reports that have recently been written for
or on behalf of Government on the subject of PSI (including the OFT’s CUPI
study, The Power of Information Review and the Cambridge study), we consider
it vital that the many recommendations and proposals in these documents are
followed through and do not remain simply fine ideas on paper. Accordingly,
APPSI will periodically review and report on the progress that has been made
further to these papers; and in so doing encourage momentum to be maintained.
Initial inquiry into mandating the re-use of PSI
To stimulate and widen debate about the future exploitation of PSI, we will
conduct an initial inquiry into the implications of introducing a regime under
which public bodies would be subject to some kind of obligation to make their
PSI available for re-use. There is no such obligation today under the PSI
Regulations.
Consider the future of the complaint/review function
Given that some misgivings have been expressed about the compatibility of
APPSI’s advisory and complaint/review function under the PSI Regulations, we
intend to conduct a preliminary, internal assessment of this potential source of
concern. We have asked a senior expert member of the Panel, who was not
directly involved in the Review Board’s first report, to undertake this study.
Revision of Review Board procedures
In light of experience gained during the preparation of the first report produced
by a Review Board of APPSI, the Panel will publish a revised set of procedures
governing the way in which recommendations are reviewed and complaints
are considered by APPSI Review Boards under the PSI Regulations.
11
5 Financial Report
APPSI Financial Report
Full cost of operating APPSI and the Review Board in 2007/08, was £107,100.
Direct Costs
APPSI Secretariat and OPSI staff costs
£
60,200
APPSI Members’ Fees and Honorariums
5,000
Review Board Fees
5,700
APPSI Members’ Travel Costs
1,200
APPSI Recruitment Costs
6,300
Catering
200
APPSI Annual Report publishing
Total Direct Costs
Indirect Costs and Overheads
Total Cost
Note:
3,700
82,300
24,800
107,100
1) All costs are to the nearest £100
2) The costs include:
• full direct costs
• a proportion of staff costs and with associated overheads based
on time spent supporting the Panel.
• indirect overheads associated with the Panel, such as IT support,
OPSI Finance and Business Support and accommodation costs.
Members’ Remuneration
The APPSI Chairman and Deputy Chairman are entitled to claim an Honorarium
for the work they undertake for the Panel. Other members are able to claim
actual Travel and Subsistence expenses incurred in the course of fulfilling their
role for the Panel. In 2007/08, £1,200 was incurred on Travel and Subsistence for
Panel members.
APPSI
Chairman Honorarium
Deputy Chairman Honorarium
Annual Fee
£
3,000
2,000
Review Boards are established for each review that the Panel decides to accept.
Members receive a daily rate for work undertaken on the review. The rates in
2007/08 are set out below. Total cost of Review Board fees in 2007/08 was £4,100.
Review Board
Chairman
Deputy Chairman
Independent Assessor
Daily Rate
£
550
550
550
Additionally, a revision to the review procedures was commissioned with support
from an independent contractor at a cost of £1,600. Also a fee of £250 was
incurred for work undertaken by an official from the Office of the Commissioner
for Public Appointments.
12
Membership
Members of APPSI during 20071
Chair
Professor Richard Susskind OBE
Deputy Chair
Peter Wienand
Expert Members
Professor Mike Batty CBE, Geospatial Information
Michael Clark, Geospatial Information
Chris Corbin, European Expert
Keith Dugmore, Statistical Information
Trevor Fenwick, Digital Content
John Gray, Digital Content
Hilary Newiss, Intellectual Property Issues
Michael Nicholson, Geospatial Information
Shane O’Neill, Digital Content
Avinash Persaud, Economist
Christopher Roper, Geospatial Information
Phillip Webb, Information and Communications Technology
Representative Members
Neil Ackroyd, Trading Funds
Michael Allen, Wales
Stefan Carlyle, Information Producers
James Eric Davies, Library and University Community
Christine Gifford, Information Management Community
Professor Hector MacQueen, Scotland
John Ponting, Trading Funds
Chris Sellers, End Users
Duncan Shiell, Trading Funds
John Thornton, Local Government
David Worlock, Digital Information Publishers
1
Membership changes throughout the year. Biographies of current
members can be accessed on the APPSI website at:
http://www.appsi.gov.uk/members/biographies.htm
A P P S I
Advisory Panel on Public Sector Information
Ruskin Avenue
Kew
Richmond
Surrey
TW9 4DU
secretariat@appsi.gov.uk
This report can also be accessed on the APPSI website at
http://www.appsi.gov.uk/reports/annual-report.htm
APPSI is grateful to the Cabinet Office, The National Archives, Ordnance
Survey and the Met Office for providing some of the illustrations which
have been reproduced in this report.
© Crown copyright 2008
This publication may be reproduced free of charge in any format or
medium provided that it is reproduced accurately and not used in a
misleading context. The material must be acknowledged as Crown
copyright and the title of the publication specified.
ISBN 978 0 108 50744 1
Realising the Value of Public Sector Information
Annual Report
2007