The Impact of Digitization on the Formation of a New Model for Geospatial Data

Abstract

The introduction of digitization has changed all spheres of business on a global level, including geospatial data. The general goal of the paper includes the formation of a new model of geospatial data management. The authors propose the formation of an eSpace model that includes the ePlan system. In order to achieve the goal of the paper, the authors conducted a survey in which representatives of local self-governments and holders of public authority participated through a structured online survey. A pilot study for the formation of a geospatial data model is an overview of spatial and urban planning. The focus is on looking at the real state of spatial and urban planning documents and the possibility of establishing a central database of spatial planning documents in digital format and its further distribution through a single system. In this way, easy access to digital plan data expands the community of users and enables communication with different groups of stakeholders. The introduction of the described model affects the further development of society as a whole.

Full text

Citation: Jovanovic-Milenkovic, M.;
Petrovic, F. The Impact of Digitization
on the Formation of a New Model for
Geospatial Data. Sustainability 2023,
15, 16009. https://doi.org/10.3390/
su152216009
Academic Editors: Vladimir
Obradovi´c and Ronggui Ding
Received: 31 August 2023
Revised: 19 October 2023
Accepted: 20 October 2023
Published: 16 November 2023
Copyright: © 2023 by the authors.
Licensee MDPI, Basel, Switzerland.
This article is an open access article
distributed under the terms and
conditions of the Creative Commons
Attribution (CC BY) license (https://
creativecommons.org/licenses/by/
4.0/).
sustainability
Article
The Impact of Digitization on the Formation of a New Model
for Geospatial Data
Marina Jovanovic-Milenkovic 1, * and Filip Petrovic 2
1Project Management College, Educons University, 11000 Belgrade, Serbia
2Faculty of Architecture, University of Belgrade, 11000 Belgrade, Serbia; sevenarh@gmail.com
*Correspondence: marina.jovanovic.milenkovic@pmc.edu.rs
Abstract:
The introduction of digitization has changed all spheres of business on a global level,
including geospatial data. The general goal of the paper includes the formation of a new model of
geospatial data management. The authors propose the formation of an eSpace model that includes
the ePlan system. In order to achieve the goal of the paper, the authors conducted a survey in which
representatives of local self-governments and holders of public authority participated through a
structured online survey. A pilot study for the formation of a geospatial data model is an overview of
spatial and urban planning. The focus is on looking at the real state of spatial and urban planning
documents and the possibility of establishing a central database of spatial planning documents in
digital format and its further distribution through a single system. In this way, easy access to digital
plan data expands the community of users and enables communication with different groups of
stakeholders. The introduction of the described model affects the further development of society as
a whole.
Keywords:
digitization; spatial and urban planning; eSpace; ePlan; geospatial data; data production;
data distribution; value co-creation
1. Introduction
How best to cope with the changes brought about by rapid urbanization and indus-
trialization in order to maintain and promote human well-being is a current challenge for
urban heritage conservation and management [1].
Global competitiveness in the 21st century is essentially based on improving business
by employing information and communication technologies (ICT) [
2
]. The introduction
of information and communication technologies promotes better work performance and
greater efficiency and reduces costs related to all business segments. In this way, society’s
awareness of co-creation value is raised.
The subject of this paper is related to the digitization of geospatial data, with a focus
on spatial and urban planning procedures, due to the fact that there is more and more talk
about the implementation of smart cities and the introduction of smart devices in homes,
as well as smart tools that are based on Bluetooth technologies [3].
City governments are absolutely required in the process of urban planning; utilizing
their infrastructure and technologies, as well as cooperation from citizens, will be needed
in order to approach the optimal smart city, because the ultimate goals of urban planning
based on sustainable development are to improve the quality of life of citizens [
4
]. In order
to fulfil the goal of a smart city, it is necessary to provide better access to high-quality and
comparable urban planning data through a digital platform [
5
]. The use of ICT networks
also needed for the future “smart city environment” [
6
]. In this regard, the process of urban
planning, sustainable development, urban sprawl and urban form need to be focused
around the concept of “smart growth” [7–9].
Based on the research literature, investing in smart cities affects the changing functions
of urban planning and urban management [
10
]. Sucupira Furtado et al. (2023) examined
Sustainability 2023,15, 16009. https://doi.org/10.3390/su152216009 https://www.mdpi.com/journal/sustainability

Sustainability 2023,15, 16009 2 of 24
smart management and digital government. Their findings highlighted the significant role
of digital data, transparency and commitment to justice among planners and policy makers
to achieve a sustainable smart city [
11
]. Also, Mortaheb and Jankovski (2022) point out that
a main role in improving the efficiency of urban services is played by GeoAI (geospatial
artificial intelligence) [12].
These facts are confirmed by Jiang et al., who state that new business models developed
as a result of new technologies affect the skill set and business practices among planning
professionals [13].
Looking at such a significant part of the smart city, two main purposes of digitization
in the field of geospatial and urban planning are identified:
•Enabling easy access to data from planning documents, with a high level of transparency.
•
Creating national (regional/local) digital portal of homogeneous and high-quality
geospatial data.
The authors certainly point to certain advantages related to the impact of digitization
on the formation of a new model for geospatial data. Analyzing the previous literature,
they mostly cite experiences using different software tools for digital visualization. In
addition, they point to the importance of digital data exchange, which is why we need to
work on improving the standardization of the database. It is also necessary to improve
communication with interested parties [
14
]. One of the disadvantages of applying digitiza-
tion is that local self-government units rely on electronics, which can make them unable to
react or act in a scenario where these tools are not available.
The general goal of the paper includes the formation of a new model of geospatial
data management, i.e., the ePlan as a future part of the eSpace for the digitization of
planning documents.
eSpace is defined as part of the digital platform for the production of geospatial
and nongeospatial data [
15
] of the National Infrastructure of Geospatial Data and the
distribution of that data to citizens, the economy and public administration in the territory
of the Republic of Serbia. The prerequisite for the formation of eSpace is the provision of
high-quality and up-to-date spatial data and access to such data for their consistent use,
in the processes of spatial planning and environmental protection, investment planning,
construction, real estate valuation and real estate management [16].
An integral part of eSpace is ePlan. ePlan is a system for the production of planning
documents and other legal regulations governing the use of space, including construction
conditions [16].
The main hypothesis:
•
It is necessary to establish a new model for geospatial data, an eSpace system, which
includes a centralized electronic database of planning documents and all data related
to land in Serbia, relevant for the use of space and construction.
More detailed hypotheses are as follows:
•
Establishing the ePlan system, for the sake of an efficient production system of a
centralized electronic database of planning documents and all data related to land
in Serbia.
•
Establishing an efficient distribution system of a centralized electronic database of
planning documents and all data related to land in Serbia.
When formulating the hypotheses, the authors started from the necessity of presenting
the real state of geospatial data as well as applying the principles of universal design in an
integral way that is binding, checked by all stakeholders and that can be controlled. For the
formation of eSpace, it is necessary to digitize data, create a system of production and then
distribute the data via the platform. The main and specific hypotheses refer to urban and
spatial planning; however, the focus can be shifted to other data of the urban environment,
thus creating a new model of geospatial data management (Figure 1).

Sustainability 2023,15, 16009 3 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 3 of 24
urban and spatial planning; however, the focus can be shifted to other data of the urban
environment, thus creating a new model of geospatial data management (Figure 1).
Figure 1. Espace and ePlan [16].
The article is structured as follows: In Section 2, we analyzed the existing models for
the digitization of spatial urban plans in EU countries. In Section 3., using a survey as a
data collection method, we examined representatives of local self-government units and
public authority holders and analyzed their business processes. Section 4 presents the new
model of the business process, the flow chart of the process and steps to form a new model
for geospatial data. Finally, Section 5 presents the conclusions of the paper.
2. Research Background
Public administration and the services it offers, especially those of personal and civil
status, have an important role in the lives of citizens. People turn to these services in order
to solve various problems, and the interactions that people have with the representatives
of the services, as well as the information circulated in the media, can influence public
opinion about the performance and quality of these services [17]. These services have a
technology layer that provides the required software and hardware infrastructures
needed to provide digital services in smart cities [18]. This layer consists of infrastructures
needed to collect, process, handle, and store urban data [19].
In this part of the paper, an overview of solutions related to spatial and urban plan-
ning and their digitization in the EU countries and in the countries that were part of the
former Socialist Federal Republic of Yugoslavia is given.
EU countries follow development trends and keep up with the introduction of infor-
mation and communication technologies in spatial and urban planning processes in order
to increase the value of society. They started the process in phases, because they still use
analog versions of the documents. The first phase that has been completed is the digitiza-
tion of planning documents at the local level. The next phase involves planning at the
national level [20].
According to the authors Nummi, Staffans and Helenius, digitization is expected to
offer benefits in terms of land use planning and contributing to sustainability by enabling
comprehensive plans and accurate assessments of plans. They state in their paper that in
Finland, information model (IM)-based planning is initiated at the national level through
development programs and laws. In 2020, an interoperable (i.e., based on a shared, ma-
chine-readable structure, syntax and semantics) IM was developed at the national level
for local master and detailed plans. Various stakeholders were engaged in the develop-
ment process, and feedback was gathered via a public web questionnaire [21].
The countries of the former Socialist Federal Republic of Yugoslavia have also recog-
nized the benefits of digitizing these processes. Their analysis is significant because these
countries, including the Republic of Serbia, have a common tradition in spatial and urban
planning, as well as in competence to prescribe legal regulations on which land use and
development is based. In the Republic of Serbia, planning still documentation exists, for
Figure 1. Espace and ePlan [16].
The article is structured as follows: In Section 2, we analyzed the existing models for
the digitization of spatial urban plans in EU countries. In Section 3., using a survey as a
data collection method, we examined representatives of local self-government units and
public authority holders and analyzed their business processes. Section 4presents the new
model of the business process, the flow chart of the process and steps to form a new model
for geospatial data. Finally, Section 5presents the conclusions of the paper.
2. Research Background
Public administration and the services it offers, especially those of personal and civil
status, have an important role in the lives of citizens. People turn to these services in order
to solve various problems, and the interactions that people have with the representatives
of the services, as well as the information circulated in the media, can influence public
opinion about the performance and quality of these services [
17
]. These services have a
technology layer that provides the required software and hardware infrastructures needed
to provide digital services in smart cities [
18
]. This layer consists of infrastructures needed
to collect, process, handle, and store urban data [19].
In this part of the paper, an overview of solutions related to spatial and urban planning
and their digitization in the EU countries and in the countries that were part of the former
Socialist Federal Republic of Yugoslavia is given.
EU countries follow development trends and keep up with the introduction of in-
formation and communication technologies in spatial and urban planning processes in
order to increase the value of society. They started the process in phases, because they
still use analog versions of the documents. The first phase that has been completed is the
digitization of planning documents at the local level. The next phase involves planning at
the national level [20].
According to the authors Nummi, Staffans and Helenius, digitization is expected to
offer benefits in terms of land use planning and contributing to sustainability by enabling
comprehensive plans and accurate assessments of plans. They state in their paper that in
Finland, information model (IM)-based planning is initiated at the national level through
development programs and laws. In 2020, an interoperable (i.e., based on a shared, machine-
readable structure, syntax and semantics) IM was developed at the national level for local
master and detailed plans. Various stakeholders were engaged in the development process,
and feedback was gathered via a public web questionnaire [21].
The countries of the former Socialist Federal Republic of Yugoslavia have also recog-
nized the benefits of digitizing these processes. Their analysis is significant because these
countries, including the Republic of Serbia, have a common tradition in spatial and urban
planning, as well as in competence to prescribe legal regulations on which land use and
development is based. In the Republic of Serbia, planning still documentation exists, for the
most part, in analog format, meaning the planning process is manual and paper-based. As
an example, in the process of decision making for the development of infrastructure, there
is a lack of data harmonization, which generates inaccurate and contestable results. For this
reason, it is necessary to work on the digitization of planning documents. The described

Sustainability 2023,15, 16009 4 of 24
requirements lead to the need to define and implement a new model for geospatial data,
i.e., ePlan as part of the future eSpace.
In the system of the Republic of Serbia, and in accordance with the goals of the
Government of Serbia, the Program for the Development of Electronic Government, and
the Strategy for the Sustainability of Urban Development until 2030, the key challenge is to
ensure the compatibility and comparability of digitized data from planning documents that
were originally created in analog form [
22
,
23
]. Although the Government of the Republic of
Serbia recognized the need for changes in urban planning, the active involvement of other
interested parties is necessary. All target groups should be involved in the formation of a
new model for geospatial data: professional associations of urban planners and architects,
holders of public authority, local self-government units, civil society organizations, software
manufacturers, etc., in order to ensure that digital planning documents meet the optimal
standards required for their implementation. Given that the mentioned target groups have
different competences and areas of action; all levels of public administration can benefit
from the digitization of the planning system.
Easy access to digital plan data expands the user community and enables communi-
cation with different stakeholder groups. In this way, the inclusion of all target groups in
planning processes is encouraged. Therefore, it becomes essential to consider the design
and provision of service systems to manage geospatial data for spatial and urban planning
and by changing the community’s role from a passive user to an active co-creator of value.
Successful digitalization of planning documentation and data from that documenta-
tion implies defining standards and data models, establishing metadata and developing
technical requirements for data in digital planning documentation at the national level [
23
].
In order to ensure the future use and continuous development of planning documentation,
it is crucial to establish a comprehensive and uniform data structure [24].
This chapter provides an overview of the digitization of spatial and urban planning in
the Republic of Slovenia and the Republic of North Macedonia.
2.1. Digitization of Spatial Planning in the Republic of Slovenia
Digitization of planning in the Republic of Slovenia was started with the ideas of
experts in the field. This was followed by the support of state institutions, and the entire
process started in 2017. The legal regulations adopted in the new Spatial Planning Law have
been changed. It is prescribed that planning is carried out using the “Spatial Information
System (SIS)”, the creation of electronic databases of planning documents, as well as the
application of data that are necessary for the use of space and construction [25].
The process itself also started in phases. The digitization process has five compo-
nents [26]:
•Common infrastructure for spatial information;
•Spatial Information System (SIS);
•
Information renewal of real estate records (land cadastre, building cadastre, etc.)—new
IT system of the Geodetic Administration;
•
Accepting new and improving existing data (graphical accuracy of the cadastre, scan-
ning of archives, establishment of a database of built-up land—construction plots
according to the principles of mass registration in the cadastre);
•Information and project management.
The Spatial Information System (SIS) in Slovenia consists of the following modules:
•Database;
•eConstruction database on the construction of buildings;
•ePlan—register of spatial plans and register of regimes;
•Data on built-up land (residential land, records of construction land).
Access to the modules is enabled through the central web portal, where all SIS users
can find the necessary information and implement specific activities in specific procedures.
The ePlan module consists of [25]:

Sustainability 2023,15, 16009 5 of 24
•
An application for managing the procedure (workflow) during the development and
adoption of plans, which supports the collection of data, conditions, etc., data exchange
via web services, informing stakeholders, control mechanisms for the application of
standards, and public participation. The limitation that exists is that the new plan
cannot be adopted if it has not been prepared and adopted in this system.
•Register of spatial plans—GIS database.
•Register of legal regulations.
•GIS database, maintained by holders of public authority and owners of legal regulations.
•A system for monitoring the state of development in the field of urban planning.
It is the responsibility of the plan developer to review the standards that specify how
spatial and urban plans are created and adopted, what they contain and how they are
technically processed. The shortcoming of this system is that, from the legal perspective,
all the entered data do not have a binding element for the holders of public authority [
25
].
2.2. Digitization of Spatial Planning in the Republic of North Macedonia
Digitization of spatial and urban planning in the Republic of North Macedonia implies
a concept that is composed of several components [
27
]. Spatial information system consists
of [27]:
•Real estate cadastre;
•Infrastructure cadastre;
•Central database of legal regimes (not established);
•Graphic register of construction land;
•Manual for creating spatial and urban plans—eUrbanism.
A division of labor was carried out in North Macedonia. The Spatial Planning Agency
deals with the development of spatial plans. It also establishes and controls the central
base of legal regulations, and as such is recognized as having the character of a state
controller for all urban plans prepared by authorized architectural firms for the needs of
local self-government units.
The graphic register of construction land is a unique electronic record, which contains
all spatial and descriptive data for construction land. It implies the standardization of
processes, procedures and data entry. This increases the transparency of the process of
adopting urban plans, increases the percentage of realization of detailed urban plans,
affects the increase in the number of investments for specific locations, a faster and simpler
procedure for issuing a copy of the urban plan, and providing numerical/analytical data,
etc. By introducing standards, mandatory layers and attributes are defined. It is the
responsibility of the plan maker to comply with rules regardless of the choice of software
used [27].
The advantages of the Graphic Register of construction land are [27]:
•
Introduction of widely adopted technical GIS standards on the method of creating and
storing urban plans in the central GIS database, which enables a transparent overview
of locations where urban plans are in force, ownership of cadastral plots, construction
land according to attributes, construction plots on state land, etc.;
•
It is complementary with the “eUrbanism” system, which facilitates participation and
the procedures for making, adopting and implementing plans.
The central base of legal regulations has not yet been implemented.
3. Research Approach
The effectiveness of planning implementation is the basis of the existence of planning
legitimacy, and the issue of the effectiveness of planning implementation has been widely
emphasized in both practical and academic circles [28].
Like any other system, public administration has certain principles that guide it and
stand at the basis of its operation. Some of these principles [17,29,30] are:

Sustainability 2023,15, 16009 6 of 24
•
Legality—the authorities, its component institutions and the people working within it
must act in accordance with the laws;
•
Equality—people who use the services offered by the administration must be given
equal treatment;
•
Transparency—citizens must be allowed to participate in making administrative deci-
sions, and have access to various information that may be of interest to them;
•
Proportionality—there must be a balance between the needs of the people and the
decisions taken by the administration, and it must analyze the impact that the measures
taken have on the people;
•Impartiality—employees must act and solve problems objectively;
•Continuity—the administration must not interrupt its activity;
•
Adaptability—people’s needs are constantly changing, and the administration must
keep up with them.
In the context of the local public administration, “the power of local administration
is that it represents the common citizen” [
31
]. In this regard, citizens expect the public
administration to be efficient, competent, modern and responsive to their problems [
32
].
This concept seems to ensure social value co-creation of sustainable social projects.
In the Republic of Serbia, the analysis of the state of spatial and urban planning
indicates an excessive number of different types of planning documents. Competence
for drawing up and adopting plans is divided between the Republic, the autonomous
province, the city of Belgrade and local self-government units. Spatial and urban plans
have a strategic and regulatory character in terms of enforceability.
In general, plan data include regulations for land use, and is produced by spatial
planning authorities [33,34].
The spatial plan of special purpose areas and the spatial plan of local self-government
units can be directly applied if, in addition to the strategic part, they contain elements
of detailed regulation. The general urban plan contains a strategic plan without regula-
tory elaboration.
During the analysis, it was observed that the planning documents of the narrow area
are not harmonized with the planning document of the wider area. Their harmonization is
necessary, as well as, in the end, compliance with the Spatial Plan of the Republic of Serbia.
Priority planning documents for development and adoption, i.e., regional spatial
plans and spatial plans of special purpose areas, are determined by the Spatial Plan of the
Republic of Serbia.
The Law on Planning and Construction [
35
] establishes the deadline for the prepara-
tion of planning documents of spatial plans of local self-government units, general urban
plans and general regulation plans that are under the jurisdiction of local self-governments.
These plans also prescribe the mandatory preparation of detailed regulation plans. A
detailed regulation plan can also be drawn up at the request of the investor, although its
preparation is not prescribed by the wider area plan. Plans of a wider area prescribe a
deadline in which planning documents need to be prepared. The creation of a spatial plan
of a special purpose area or the creation of a detailed regulation plan can be initiated by the
manager of a protected natural or cultural asset, the manager of the infrastructure, or an
interested investor [31].
3.1. Approach Method and Technique
Considering the complexity of the described procedure as well as the necessity of
introducing digitalization into this process, research was conducted in order to consider
the possible implementation of the ePlan as a future part of eSpace. It implies looking
at resources regarding the capacity of employees, adequate knowledge, and the use of
ICT technologies.
The research is carried out by the survey method; the research technique is a question-
naire. The research was conducted between representatives of local self-government units

Sustainability 2023,15, 16009 7 of 24
and representatives of holders of public authority at the republican and regional levels. It
covered the period from 12 July to 19 July 2021.
Two research studies were conducted [31]:
•For representatives of local self-government units;
•For representatives of holders of public authority.
Representatives of local self-government units filled out a survey consisting of 26 ques-
tions. The total number of responses included in the sample for processing is 71, of which
15 are from cities and 56 are from municipalities. The sample was evenly distributed re-
gionally with around 30% representatives from each region, with the exception of Belgrade,
for which the questionnaire was filled out by the Belgrade City Administration (Figure 2).
Sustainability 2023, 15, x FOR PEER REVIEW 7 of 24
3.1. Approach Method and Technique
Considering the complexity of the described procedure as well as the necessity of
introducing digitalization into this process, research was conducted in order to consider
the possible implementation of the ePlan as a future part of eSpace. It implies looking at
resources regarding the capacity of employees, adequate knowledge, and the use of ICT
technologies.
The research is carried out by the survey method; the research technique is a
questionnaire. The research was conducted between representatives of local self-
government units and representatives of holders of public authority at the republican and
regional levels. It covered the period from 12 July to 19 July 2021.
Two research studies were conducted [31]:
• For representatives of local self-government units;
• For representatives of holders of public authority.
Representatives of local self-government units filled out a survey consisting of 26
questions. The total number of responses included in the sample for processing is 71, of
which 15 are from cities and 56 are from municipalities. The sample was evenly
distributed regionally with around 30% representatives from each region, with the
exception of Belgrade, for which the questionnaire was filled out by the Belgrade City
Administration (Figure 2).
Figure 2. The total number of responses from local governments in the survey.
Representatives of public authorities filled out a survey consisting of 25 questions.
The total number of responses included in the sample for processing is 62, of which 12 are
at the national level, two are at the provincial level and 48 are at the local level (Table 1).
The largest number of respondents have jurisdiction in the field of water supply, sewage
and gas pipelines (42%), and electricity (16%). The largest number comes from Šumadija
and Western Serbia (33%) and Vojvodina (26%) [31] (Table 2).
Table 1. Level of jurisdiction and region representatives of public authorities.
Representatives of Public Authorities Level Region of Serbia %
The national level 12
Figure 2. The total number of responses from local governments in the survey.
Representatives of public authorities filled out a survey consisting of 25 questions.
The total number of responses included in the sample for processing is 62, of which 12 are
at the national level, two are at the provincial level and 48 are at the local level (Table 1).
The largest number of respondents have jurisdiction in the field of water supply, sewage
and gas pipelines (42%), and electricity (16%). The largest number comes from Šumadija
and Western Serbia (33%) and Vojvodina (26%) [31] (Table 2).
Table 1. Level of jurisdiction and region representatives of public authorities.
Representatives of Public Authorities Level Region of Serbia %
The national level 12
The provincial level 2
The local level 48
Šumadija and Western Serbia 33%
Vojvodina 26%
The other regions 41%

Sustainability 2023,15, 16009 8 of 24
Table 2. Percentage of jurisdiction by area.
Area %
Water, gas, sewage 42%
Electricity 16%
Heating 8%
Environment 6%
Traffic/roads 6%
Cleanliness 5%
Sanitary conditions 2%
Cable network 3%
Railway 2%
Greenery 2%
N/A 2%
Forests 2%
Waterways 2%
Ski resorts 2%
In total 100%
3.2. Analysis of Research Results
After conducting a survey with representatives of local self-government units and
holders of public authority, an analysis of the responses was made. The analysis indicates
that there are valid spatial plans at all levels in the Republic of Serbia. The Spatial Plan of
the Republic of Serbia is legally valid. However, the lack of urban plans is evident. All cities
have adopted general urban plans, but not general and detailed regulation plans. General
regulation plans, as a new type of planning documents, were introduced into planning
practice in 2009 but were not adopted within the legally prescribed deadline.
In practice, when there is no adopted planning document, general rules for arrange-
ment and construction are rarely applied. It happens that location conditions are issued on
the basis of a plan of a wider area that contains regulations, in the case when a detailed reg-
ulation plan has not been adopted within the prescribed period. Considering this practice,
the general regulation plan, as a planning document that should be the basic urban plan
and that should be directly implemented, did not meet expectations in practice. Because
of all the above, it is necessary to seriously reconsider justifying the existence of different
types of urban plans.
The main results of the surveyed representatives of local self-government units are
that [31]:
•
Most local self-governments always announce the start date of work on spatial and
urban plans.
•
Twenty-five percent of local self-governments announce the start date of work on the
general urban plan, while the rest did not prepare this type of plans.
•
In the process of drafting planning documents with the delivery of conditions, holders
of public authorities at the republic level are most often late, and this is less often the
case at the local level.
•
Fifty percent of local self-governments organize a consultative process in the process
of drafting planning documents.
•
The consultative process is most often organized through the collection of proposals
through the website of local governments, holding round tables or focus groups.
•
The average number of comments per plan, during public inspection, is generally less
than 10.
•
Challenges for digitization are seen by most local governments in the insufficient
number of personnel or in their inadequate training. Some of them state that they are
aware that these shortcomings can be eliminated by educating the joint services of
several local governments, while others suggest that it is necessary to find a way to
hire additional quality staff.

Sustainability 2023,15, 16009 9 of 24
•
Commissions for plans of local self-governments generally meet once a month or
as needed.
•
Electronic sessions of the Commission for Local Self-Government Plans are rarely
organized, although in most cases (63%) they are foreseen by the Rules of Procedure
of the Commission, and the reason given is the insufficient equipment of local self-
governments, which often do not have multimedia rooms, licensed software for online
meetings or good internet.
•
Most representatives of local self-governments enter data into the General regulation
plan in CAD format (Figure 3). More precisely, on the basis of the answers received,
the percentage ratio of the entry of plans in CAD format can be observed:
#
48% of local self-government units enter data into the General Regulation plan;
#
46% of local self-government units enter data into the Detailed regulation plan;
#34% of local self-government units enter data into the Space plan;
#29% of local self-government units enter data into the Urban project.
Sustainability 2023, 15, x FOR PEER REVIEW 10 of 24
the answers received, the system software used by the employees participating in the
planning documentation has the following structure:
o 76% of representatives know how to use the Central Record of the Unified
Procedure;
o 2% of the representatives know how to use the service mode of the organ;
o 24% of representatives know how to use GIS tools;
o 50% of representatives know how to use CAD tools;
o 6% of representatives know how to use the Central Register of planning docu-
ments.
• Software used by holders of public authorizations to create documentation:
o CAD tools v.24.1 tools—52%;
o Microsoft Office 2019—76%;
o GIS 10.8 tools 23%.
• Software used by holders of public authority to read documents of other bodies:
o CAD tools—60%;
o Microsoft Office—77%;
o GIS tools 21%.
• The majority of holders of public authority find the challenges of digitization of their
actions in human and technical capacities (on average, each service has four engaged
employees who work on the creation or reading of documentation related to spatial
plans) (Figure 8).
• A large number of holders of public authorities point out that the age of their equip-
ment is the main problem for the digitization of the procedure (on average, comput-
ers are 6 years old).
• Eighty-two percent of public authority holders never engage external experts in the
development of conditions for spatial and urban plans.
Figure 3. Predominant form of valid plans by type of plan (% local self-government).
Figure 3. Predominant form of valid plans by type of plan (% local self-government).
The main results of the surveyed representatives of public authorities are that [31]:
•
The largest number of holders of public authority derive their authority from the Law
on Planning and Construction and the regulations adopted on the basis of that law,
but also from sectoral laws such as the Law on Energy, the Law on Water, the Law on
Communal Activities, etc., as well as from the acts of LGUs.
•
Ninety-five percent of holders of public authority participate in the process of drafting
planning documents by giving conditions, although other ways are mentioned, such
as providing information, giving consent or opinions.
•
Seventy-nine percent of holders of public authority state that they always submit
documentation within the deadline (most of them within 6–15 days) (Figure 4).
•
The majority of holders of public authority do not cooperate with other authorities or
holders in the process of drawing up conditions, which enables them to act within the
deadlines because they do not depend on the promptness of others.

Sustainability 2023,15, 16009 10 of 24
•
The majority of holders of public authority submit conditions (substances, consents,
information) from their jurisdiction in analog form, i.e., in paper form, and less than
5% in CAD format or GIS database (Figure 5). More precisely, the percentage of data
that are in paper format, and refer to the deadline for submitting documentation, are
as follows:
#56% of the data refer to Conditions;
#34% of the data refer to Substrates;
#52% of the data refer to Agreements;
#53% of data on Information.
•
No representative of the holder of public authority stated that some regulation, which
governs their operations and competences, is a potential problem for the digitization
of the process of creating spatial and urban plans.
•
Sixty-five percent of holders of public authority believe that they have personal re-
sources of adequate education (Figure 6).
•
In 76% of cases, in the process of creating or reading documentation, representatives
of public authority holders use Microsoft Office tools, but also other open and free
software (Libre Office 7.2.4.1, Open Office Writer 4.1.11, etc.) (Figure 7). According to
the answers received, the system software used by the employees participating in the
planning documentation has the following structure:
#
76% of representatives know how to use the Central Record of the Unified
Procedure;
#2% of the representatives know how to use the service mode of the organ;
#24% of representatives know how to use GIS tools;
#50% of representatives know how to use CAD tools;
#
6% of representatives know how to use the Central Register of planning documents.
•Software used by holders of public authorizations to create documentation:
#CAD tools v.24.1 tools—52%;
#Microsoft Office 2019—76%;
#GIS 10.8 tools 23%.
•Software used by holders of public authority to read documents of other bodies:
#CAD tools—60%;
#Microsoft Office—77%;
#GIS tools 21%.
•
The majority of holders of public authority find the challenges of digitization of their
actions in human and technical capacities (on average, each service has four engaged
employees who work on the creation or reading of documentation related to spatial
plans) (Figure 8).
•
A large number of holders of public authorities point out that the age of their equip-
ment is the main problem for the digitization of the procedure (on average, computers
are 6 years old).
•
Eighty-two percent of public authority holders never engage external experts in the
development of conditions for spatial and urban plans.

Sustainability 2023,15, 16009 11 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 11 of 24
Figure 4. Timeliness of submission of documentation.
Figure 5. % of holders of public authorizations according to the average deadline for submission of
documentation (by type of documentation).
Figure 4. Timeliness of submission of documentation.
Sustainability 2023, 15, x FOR PEER REVIEW 11 of 24
Figure 4. Timeliness of submission of documentation.
Figure 5. % of holders of public authorizations according to the average deadline for submission of
documentation (by type of documentation).
Figure 5.
% of holders of public authorizations according to the average deadline for submission of
documentation (by type of documentation).

Sustainability 2023,15, 16009 12 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 12 of 24
Figure 6. % of representatives of public authority holders—assessment of the adequacy of the edu-
cation of engaged employees.
Figure 7. % of tools used for the publishing of documentation prepared by the holders of public
authority.
Figure 6.
% of representatives of public authority holders—assessment of the adequacy of the
education of engaged employees.
Sustainability 2023, 15, x FOR PEER REVIEW 12 of 24
Figure 6. % of representatives of public authority holders—assessment of the adequacy of the edu-
cation of engaged employees.
Figure 7. % of tools used for the publishing of documentation prepared by the holders of public
authority.
Figure 7.
% of tools used for the publishing of documentation prepared by the holders of public
authority.

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Sustainability 2023, 15, x FOR PEER REVIEW 13 of 24
Figure 8. % of holders of public powers according to potential obstacles for digitalization of
processes.
3.3. Analysis of the Legal Framework on Data on Planning Documents
In order to establish an efficient system of spatial and urban planning, it is necessary
to establish a comprehensive public electronic database of all valid planning documents,
as well as a unified electronic procedure in which these documents will be adopted. The
analysis of the planning documents included, first of all, a detailed analysis of regulations
related to planning and construction.
Considering the legal regulations and received responses from representatives of lo-
cal self-government units and holders of public authority, it is necessary to amend the
Law on Planning and Construction, in accordance with the application of ICT technolo-
gies [31]:
• Prescribe the establishment of a central database of all valid planning documents,
which ensures their continuous public availability.
• Through the ePlan information system, as part of the unification of the electronic pro-
cedure, it is necessary to obtain the approvals prescribed by the Law on planning
documents, as well as control procedures by the commission that controls the com-
pliance of planning documents.
• Through the ePlan information system, prescribe that local planning documents and
conditions in the area are monitored.
• The obligation to implement a unified procedure through the ePlan information sys-
tem, in the process of adopting all valid planning documents.
• The unified procedure for the adoption of spatial and urban plans is fully imple-
mented electronically, through the ePlan information system.
• The unified procedure includes plan makers, as well as all holders of public authority
who are involved in that procedure, with deadlines for action appropriate to the elec-
tronic procedure.
• To communicate in the unified procedure exclusively through the exchange of elec-
tronic documents and submissions, except in the case of a special aachment that
Figure 8.
% of holders of public powers according to potential obstacles for digitalization of processes.
3.3. Analysis of the Legal Framework on Data on Planning Documents
In order to establish an efficient system of spatial and urban planning, it is necessary
to establish a comprehensive public electronic database of all valid planning documents,
as well as a unified electronic procedure in which these documents will be adopted. The
analysis of the planning documents included, first of all, a detailed analysis of regulations
related to planning and construction.
Considering the legal regulations and received responses from representatives of local
self-government units and holders of public authority, it is necessary to amend the Law on
Planning and Construction, in accordance with the application of ICT technologies [31]:
•
Prescribe the establishment of a central database of all valid planning documents,
which ensures their continuous public availability.
•
Through the ePlan information system, as part of the unification of the electronic
procedure, it is necessary to obtain the approvals prescribed by the Law on plan-
ning documents, as well as control procedures by the commission that controls the
compliance of planning documents.
•
Through the ePlan information system, prescribe that local planning documents and
conditions in the area are monitored.
•
The obligation to implement a unified procedure through the ePlan information
system, in the process of adopting all valid planning documents.
•
The unified procedure for the adoption of spatial and urban plans is fully implemented
electronically, through the ePlan information system.
•
The unified procedure includes plan makers, as well as all holders of public authority
who are involved in that procedure, with deadlines for action appropriate to the
electronic procedure.
•
To communicate in the unified procedure exclusively through the exchange of elec-
tronic documents and submissions, except in the case of a special attachment that
refers to special measures of organization and preparation of the territory for the needs
of the country’s defense.

Sustainability 2023,15, 16009 14 of 24
•Prescribe the level of authentication required to access the ePlan information system.
•
Prescribe that the data, i.e., planning documents registered in the central database of
planning documents, produce legal effects towards conscientious third parties, which
would give that database the status of a register.
•Establish a central base of legal regimes of holders of public authority.
•
Prescribe the obligation of all holders of public authority to register their legal regimes
in the central database of legal regimes.
•
Establish a mechanism that will ensure the completeness of the central database of
legal regulations and its compliance with the law and valid planning documentation,
and in particular ensure that a sufficient volume of data are entered into the central
database of legal regulations, so that location conditions can be issued based on them
without additional inquiries.
4. New Model for Geospatial Data
4.1. Model of Business Process
Based on the analysis, the authors propose a model that will include the data of local
self-government and public authorities. It implies the application of ICT technologies and
digitization of the described data. Certainly, in order for the model to be applied, there
must be adequate ICT equipment as well as a social component, which implies adequate
user knowledge, user training, and communication and cooperation between users. The
model implies three main business processes (Figure 9):
1. Data production;
2. Distribution database;
3. Distribution of data.
Sustainability 2023, 15, x FOR PEER REVIEW 14 of 24
refers to special measures of organization and preparation of the territory for the
needs of the country’s defense.
• Prescribe the level of authentication required to access the ePlan information system.
• Prescribe that the data, i.e., planning documents registered in the central database of
planning documents, produce legal effects towards conscientious third parties,
which would give that database the status of a register.
• Establish a central base of legal regimes of holders of public authority.
• Prescribe the obligation of all holders of public authority to register their legal re-
gimes in the central database of legal regimes.
• Establish a mechanism that will ensure the completeness of the central database of
legal regulations and its compliance with the law and valid planning documentation,
and in particular ensure that a sufficient volume of data are entered into the central
database of legal regulations, so that location conditions can be issued based on them
without additional inquiries.
4. New Model for Geospatial Data
4.1. Model of Business Process
Based on the analysis, the authors propose a model that will include the data of local
self-government and public authorities. It implies the application of ICT technologies and
digitization of the described data. Certainly, in order for the model to be applied, there
must be adequate ICT equipment as well as a social component, which implies adequate
user knowledge, user training, and communication and cooperation between users. The
model implies three main business processes (Figure 9):
1. Data production;
2. Distribution database;
3. Distribution of data.
Figure 9. The three main business processes.
1. The Data Production process involves the collection of data from local self-govern-
ments (LSG) and holders of public authorizations related to a number of aributes:
• Collection of urban and spatial plans managed by LSG, in the appropriate for-
mat’
• Collection of data from the Ecadaster database managed by RGA (data on ca-
dastral municipality, cadastral plot, area, legal property data);
• Collection of data from the Address Register database managed by RGA;
• Collection of data from the database for granting building permits managed by
the Serbian Business Registers Agency;
Figure 9. The three main business processes.
1.
The Data Production process involves the collection of data from local self-governments
(LSG) and holders of public authorizations related to a number of attributes:
•
Collection of urban and spatial plans managed by LSG, in the appropriate format’
•
Collection of data from the Ecadaster database managed by RGA (data on cadas-
tral municipality, cadastral plot, area, legal property data);
•Collection of data from the Address Register database managed by RGA;
•
Collection of data from the database for granting building permits managed by
the Serbian Business Registers Agency;
•
Collection of data from the Disaster Risk Register on geographic location, data
on hydrographic features, data on relief, data on meteorological-climatic features,
data on demographic features, data on agriculture, data on material and cultural
assets and protected natural assets, and data on plant cover in order to recognize

Sustainability 2023,15, 16009 15 of 24
the risks of floods, landslides, forest fires, earthquakes, epidemics and pandemics
and other risks;
•Other data from relevant databases.
For this process, it is necessary to submit a data format that is harmonized and
standardized. For example, if some plans are made in another format, it is necessary to
use techniques for data transformation from one format to another (such as the Feature
Manipulation Engine—FME). Professional associations of urban planners and architects,
holders of public authority, local self-government units, civil society organizations and
other important participants participate in the described phase of the process.
2.
The distribution database implies the creation of the ePlan IS system, which contains
a unique central database that will enable:
•Establishing a central database of planning documents;
•Ensuring that spatial and urban plans are adopted through the IS system ePlan;
•Establishing a central base of legal regimes.
3.
Data distribution implies a joint presentation of the situation in space, data monitoring,
as well as joint geoinformation distribution components. In this way, we form the
eSpace database. The publication of all geospatial data must be performed exclusively
through the central eSpace portal.
4.2. The Flow Chart of the Process
Based on the three main business processes, a flowchart is formed. The first step is
collaboration and cooperation between stakeholders. This confirms that everyone will
collect data from their jurisdiction and ensure that the data are transparent and accessible
to everyone.
Data collection implies that data are collected in an adequate format according to
agreed standards. The collected data are entered in the register. Entry, change and deletion
of data, entry of documents are registered in the register. We distinguish between two types
of register: register of legal regimes and register of urban and spatial planning.
After entering the data into the Registers, the Data Distribution phase occurs, with the
possible visualization of that data on a digital platform. In this way, a model for managing
geospatial data is formed and additional value is created.
Based on the above, a new model is being formed that has its own benefits:
•All data are in one place;
•The data are digitized and easy access is enabled;
•Data are visible and transparent;
•All stakeholders communicate with each other and share their data.
The proposed flow chart of the process is shown in Figure 10.
In this way, the authors point to the benefits of forming a new model of geospatial
data because its formation indicates the possible electronic display of all data located in real
space. Based on this, it is possible to report and a standardized visual display containing
all the data found in the database.
The entire model process introduces the concept of collaboration and co-creation,
based on the recognition of the importance of accessibility and the principle of universal
design for all people, shifting the focus from urban and spatial planning to geospatial data
useful for all users. This indicates the necessity of an integral and comprehensive approach
to the described problem and building a digital platform of geospatial data with a unique
database, i.e., eSpace.

Sustainability 2023,15, 16009 16 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 16 of 24
Figure 10. The flow chart of the process.
In this way, the authors point to the benefits of forming a new model of geospatial
data because its formation indicates the possible electronic display of all data located in
real space. Based on this, it is possible to report and a standardized visual display con-
taining all the data found in the database.
The entire model process introduces the concept of collaboration and co-creation,
based on the recognition of the importance of accessibility and the principle of universal
design for all people, shifting the focus from urban and spatial planning to geospatial data
useful for all users. This indicates the necessity of an integral and comprehensive ap-
proach to the described problem and building a digital platform of geospatial data with a
unique database, i.e., eSpace.
4.3. Steps to Form a New Model for Geospatial Data
As the digital economy expands, digitalization has become a significant global trend
[36–38]. A rising number of enterprises has been embracing digital transformation with
edge-cuing technologies to respond to this trend [39]. The digital transformation, as a
process of data collection, storage and analysis using advanced digital technologies, has
become a strategic selection for many firms to improve productivity [40,41]. As a result of
the deep adjustments in technology and the market environment brought about by the
advent of the digital economy, more and more firms are turning to digital technologies to
encourage organizational optimization and speed up the pace of innovation in products
and services. Value co-creation denotes that this process occurs through interaction be-
tween an organization and citizens. Thus, the concept of social value seeks to maximize
the additional benefits created by the commissioning of projects and services, above and
beyond the benefits of the products and services themselves.
In relation to the goal, paper hypotheses and analysis of the current state of spatial
and urban planning in the Republic of Serbia, the conclusion is that it is necessary to create
a new model for geospatial data, i.e., ePlan as part of eSpace (Figure 11).
Figure 10. The flow chart of the process.
4.3. Steps to Form a New Model for Geospatial Data
As the digital economy expands, digitalization has become a significant global
trend [
36
–
38
]. A rising number of enterprises has been embracing digital transformation
with edge-cutting technologies to respond to this trend [
39
]. The digital transformation, as
a process of data collection, storage and analysis using advanced digital technologies, has
become a strategic selection for many firms to improve productivity [
40
,
41
]. As a result
of the deep adjustments in technology and the market environment brought about by the
advent of the digital economy, more and more firms are turning to digital technologies
to encourage organizational optimization and speed up the pace of innovation in prod-
ucts and services. Value co-creation denotes that this process occurs through interaction
between an organization and citizens. Thus, the concept of social value seeks to maximize
the additional benefits created by the commissioning of projects and services, above and
beyond the benefits of the products and services themselves.
In relation to the goal, paper hypotheses and analysis of the current state of spatial
and urban planning in the Republic of Serbia, the conclusion is that it is necessary to create
a new model for geospatial data, i.e., ePlan as part of eSpace (Figure 11).
The paper started from the special goals adopted by the Government of the Republic of
Serbia through the “Program for the Development of Electronic Government in the Republic
of Serbia for the Period from 2020 to 2022 with the Action Plan for its Implementation”,
which represent the basis of the implementation of digitized planning documents [22].
The “Strategy of Sustainable Urban Development of the Republic of Serbia until
2030” [
23
] supports digitization and the introduction of electronic services in the manage-
ment of urban development, which also represents the basis for the development of the
described digitization. This confirms the general goal of the paper.

Sustainability 2023,15, 16009 17 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 17 of 24
Figure 11. A system of production and distribution of a unique database of planning documents
[31].
The paper started from the special goals adopted by the Government of the Republic
of Serbia through the “Program for the Development of Electronic Government in the Re-
public of Serbia for the Period from 2020 to 2022 with the Action Plan for its Implementa-
tion”, which represent the basis of the implementation of digitized planning documents
[22].
The “Strategy of Sustainable Urban Development of the Republic of Serbia until
2030” [23] supports digitization and the introduction of electronic services in the manage-
ment of urban development, which also represents the basis for the development of the
described digitization. This confirms the general goal of the paper.
The main and special hypotheses were confirmed in terms of the necessary establish-
ment of a system of production and distribution of a centralized database of planning
documents. This activity develops and establishes a new model of geospatial data, an
eSpace system related to the region of the Republic of Serbia.
Based on the research of the paper of local self-government and holders of public
authority, and the obtained analysis, it is concluded that it is necessary to improve legal
acts and enable their digitization in order to directly implement planning documents. The
adoption of social value and value co-creation concepts is an aempt to introduce multi-
disciplinary and system views to sustainable management of geospatial data in spatial
and urban planning.
Table 3 shows what needs to be achieved in local self-government units and with
public authority holders in order to create a new model for geospatial data:
Table 3. What needs to be achieved for the new model in the local self-government unit and with
public authority holders.
The Following Needs
to Be Done Local Self-Government Units Public Authority Holders
1. Review and reduce the number of types of
planning documents;
Digitize the process of obtaining conditions in
the process of creating planning documentation
2.
Digitize the entire process of preparation, coor-
dination and monitoring of the preparation of
planning documents
Establish rules on the use of available formats
for all participants in the procedure
3.
Centralize the procedure for adopting planning
documents for local self-government units that
have limited capacity
Implement a phased introduction of digitiza-
tion, depending on the provided staff, equip-
ment and financial resources
4.
Acquire the IT equipment necessary for the
digitization of the procedure for adopting plan-
ning documents
Review and take into account the current situa-
tion for registration in the cadastre of under-
ground lines
Figure 11.
A system of production and distribution of a unique database of planning documents [
31
].
The main and special hypotheses were confirmed in terms of the necessary estab-
lishment of a system of production and distribution of a centralized database of planning
documents. This activity develops and establishes a new model of geospatial data, an
eSpace system related to the region of the Republic of Serbia.
Based on the research of the paper of local self-government and holders of public
authority, and the obtained analysis, it is concluded that it is necessary to improve legal
acts and enable their digitization in order to directly implement planning documents.
The adoption of social value and value co-creation concepts is an attempt to introduce
multidisciplinary and system views to sustainable management of geospatial data in spatial
and urban planning.
Table 3shows what needs to be achieved in local self-government units and with
public authority holders in order to create a new model for geospatial data:
Table 3.
What needs to be achieved for the new model in the local self-government unit and with
public authority holders.
The Following Needs to
Be Done Local Self-Government Units Public Authority Holders
1. Review and reduce the number of types of
planning documents;
Digitize the process of obtaining conditions in
the process of creating planning documentation
2.
Digitize the entire process of preparation,
coordination and monitoring of the preparation
of planning documents
Establish rules on the use of available formats for
all participants in the procedure
3.
Centralize the procedure for adopting planning
documents for local self-government units that
have limited capacity
Implement a phased introduction of digitization,
depending on the provided staff, equipment and
financial resources
4.
Acquire the IT equipment necessary for the
digitization of the procedure for adopting
planning documents
Review and take into account the current
situation for registration in the cadastre of
underground lines
5.
Conduct regular employee training for the use of
the information system
Make sure that copies of the plan and other
documentation is sent in .dwg format, if the plot
is georeferenced
6.
Network the participants in the process of
preparation, coordination and monitoring of the
planning documents.
Send documentation in editable digital form, and
spatial data in .shp format, through
geoweb service.
7.
Digitize the entire procedure, standardization
and formatting of documentation (text and
graphics) for the purposes of issuing conditions
with up-to-date accompanying data from the real
estate cadastre in digital format.
Work on the creation of a unified cadastre of
underground utility installations to which all
holders of public authority would have access.

Sustainability 2023,15, 16009 18 of 24
The future steps to form a new model for geospatial data are [31]:
•
Develop and implement a unique ePlan information system through which planning
documents and other legal regulations governing the use of space will be produced;
•
Establish an Internal Portal for professional users, as an entry point for all actors in
the process of spatial and urban planning, as well as holders of public authority to
regulate conditions for the use of space;
•
Provide electronic communication between all participants in the system for complete
interactivity;
•Standardize the content, methodology and format of planning documents;
•
Provide a software application for the technical control of planning documents during
their creation, as well as their entry into the central database of planning documents;
•Consolidate all legal acts in the same place with planning documentation;
•Improve the capacity of human resources of representatives of local self-government
units to perform tasks in the field of urban planning, by establishing intermunicipal
cooperation;
•Provide systemic and public support in the implementation of the concept;
•
Establish the Central portal eSpace, which should ensure easy availability in one place
of all relevant information related to the conditions of use of space in Serbia, including
construction conditions;
•
Establish an open data portal on land use conditions in Serbia (Cadastre of immovable
property and utilities maintained by the Republic Geodetic Authority of the Republic
of Serbia (RGA); Central records of the unified procedure for issuing building permits
maintained by the Agency for Economic Registers; Register of immovable properties
in public ownership maintained by the Republic property directorate of the Republic
of Serbia, etc.).
The possible functioning of the eSpace system, the establishment of the ePlan system,
the production and distribution of a centralized electronic database of planning documents
and all data related to land in Serbia are shown in the following figure (Figure 12).
Sustainability 2023, 15, x FOR PEER REVIEW 19 of 24
Figure 12. G
raphic representation of the functioning of the eSpace system
[31].
Based on this figure and in order to achieve the goal, the first step is the implemen-
tation of activities within pilot municipalities and with holders of public authority. The
aim of the pilot activities is to check the applicability, adequacy and completeness of the
set standards and methodologies in practice, as well as their adaptation to the specifics
and needs of the planning management of space and land in Serbia. In accordance with
the results of the pilot activities, standards and methodologies would be approved, after
which the existing legal framework should be amended and adapted to the needs of the
eSpace system, as well as the preparation of technical specifications for the procurement
of software, hardware and other resources necessary for the development of eSpace.
In light of this, urban planning becomes an essential tool that can help local govern-
ments define land-use policies to enhance local sustainable development [42–46]. Many
cities enabled “open data“ in order to enhance transparency and accountability to their
citizens, but also to improve efficiency within the administration and promote local
economic development (e.g., by facilitating new urban digital services using government
data) [47]. Opening city data require technical expertise, breaking silos and vested
interests both within and outside the administration, geing buy-in from data users and
providers, bold political action and continuous action to carve out change in cultural
mindsets [48,49].
Through research, the authors came to three groups of recommendations that should
be implemented in order to form a geospatial data management model, i.e., eSpace. Given
that it has been observed that the data are both in paper and electronic format, it is neces-
sary to confirm the exact formats and data standards in order to make them acceptable for
use in digital form. It was also noted that it is necessary to work on the introduction of
software that enables the transformation of data from one format to another. Another im-
portant segment is the modification of legal documents in order to ensure a secure legal
aspect by implementing a digital platform.
By collecting data, creating a register of urban and spatial planning and legal regimes,
the authors indicate the possibility of data production and distribution as well as its visu-
alization. The described workflow as a result of work contributes to the creation of a new
model of geospatial data management.
Figure 12. Graphic representation of the functioning of the eSpace system [31].
Based on this figure and in order to achieve the goal, the first step is the implementation
of activities within pilot municipalities and with holders of public authority. The aim of the
pilot activities is to check the applicability, adequacy and completeness of the set standards

Sustainability 2023,15, 16009 19 of 24
and methodologies in practice, as well as their adaptation to the specifics and needs of the
planning management of space and land in Serbia. In accordance with the results of the
pilot activities, standards and methodologies would be approved, after which the existing
legal framework should be amended and adapted to the needs of the eSpace system, as well
as the preparation of technical specifications for the procurement of software, hardware
and other resources necessary for the development of eSpace.
In light of this, urban planning becomes an essential tool that can help local govern-
ments define land-use policies to enhance local sustainable development [
42
–
46
]. Many
cities enabled “open data“ in order to enhance transparency and accountability to their
citizens, but also to improve efficiency within the administration and promote local eco-
nomic development (e.g., by facilitating new urban digital services using government
data) [
47
]. Opening city data require technical expertise, breaking silos and vested interests
both within and outside the administration, getting buy-in from data users and providers,
bold political action and continuous action to carve out change in cultural mindsets [
48
,
49
].
Through research, the authors came to three groups of recommendations that should
be implemented in order to form a geospatial data management model, i.e., eSpace. Given
that it has been observed that the data are both in paper and electronic format, it is necessary
to confirm the exact formats and data standards in order to make them acceptable for use in
digital form. It was also noted that it is necessary to work on the introduction of software
that enables the transformation of data from one format to another. Another important
segment is the modification of legal documents in order to ensure a secure legal aspect by
implementing a digital platform.
By collecting data, creating a register of urban and spatial planning and legal regimes,
the authors indicate the possibility of data production and distribution as well as its
visualization. The described workflow as a result of work contributes to the creation of a
new model of geospatial data management.
The practical application of the results of the research carried out in the paper can be
widely used in the field of geospatial data as:
•
The basis for understanding the principles of universal design in order to achieve
co-creation in practice through an integral procedure from design to monitoring.
•
Incentives to empower all users to respond to the geospatial environment by active
participation through the platform.
•
The basis for the possible automation of the data processing process of various
databases and the complete automation of the decision-making process on the accessi-
bility of a certain urban environment.
By shifting the focus from urban and spatial planning to other databases and their
registers such as cultural heritage, the health sector, and tourism of one region and others,
the eSpace model for the complete management of geospatial data is formed. In this way,
collaboration and co-creation is created as value creation for all users of the model, which
further complements the importance of the model described in this way.
The main bearers of the described activities would be the institutions of the Republic
of Serbia: the Ministry of Construction, Transport and Infrastructure (MCTI), the Republic
Geodetic Authority (RGA), the Office of e-Government. It is also necessary to ensure
the involvement of representatives of several institutions in the implementation of this
reform, representatives of all ministries in whose jurisdiction the affairs of holders of public
authority are, those obliged to introduce legal regimes, as well as representatives of other
institutions. The entire process of communication would be based on the digital input of
data for which institutions are responsible and their transparency between participants
(Figure 13).

Sustainability 2023,15, 16009 20 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 20 of 24
The practical application of the results of the research carried out in the paper can be
widely used in the field of geospatial data as:
• The basis for understanding the principles of universal design in order to achieve co-
creation in practice through an integral procedure from design to monitoring.
• Incentives to empower all users to respond to the geospatial environment by active
participation through the platform.
• The basis for the possible automation of the data processing process of various data-
bases and the complete automation of the decision-making process on the accessibil-
ity of a certain urban environment.
By shifting the focus from urban and spatial planning to other databases and their
registers such as cultural heritage, the health sector, and tourism of one region and others,
the eSpace model for the complete management of geospatial data is formed. In this way,
collaboration and co-creation is created as value creation for all users of the model, which
further complements the importance of the model described in this way.
The main bearers of the described activities would be the institutions of the Republic
of Serbia: the Ministry of Construction, Transport and Infrastructure (MCTI), the Republic
Geodetic Authority (RGA), the Office of e-Government. It is also necessary to ensure the
involvement of representatives of several institutions in the implementation of this re-
form, representatives of all ministries in whose jurisdiction the affairs of holders of public
authority are, those obliged to introduce legal regimes, as well as representatives of other
institutions. The entire process of communication would be based on the digital input of
data for which institutions are responsible and their transparency between participants
(Figure 13).
Figure 13. The digital input of data and their transparency between the participants [31].
By networking all data about each location, complete geolocation information is ob-
tained. This creates the value of co-creation for public and private institutions and citizens
of the country (Figure 14).
Figure 13. The digital input of data and their transparency between the participants [31].
By networking all data about each location, complete geolocation information is
obtained. This creates the value of co-creation for public and private institutions and
citizens of the country (Figure 14).
Sustainability 2023, 15, x FOR PEER REVIEW 21 of 24
Figure 14. Graphic representation of connections with geolocations [31].
Keeping in mind internal and external human resources, there is a connection of sev-
eral actors in one place: citizens, investors, local self-government units, state and other
institutions. Between them, electronic communication is realized, which includes several
models of communication: G2B, G2C, B2B, B2C and B2E. The two most common models
of communication are G2C and G2B [5] (Figure 15):
• The Government-to-Consumer (G2C) model is used by potential investors and
citizens to obtain information about locations. The G2C model is primarily concerned
with obtaining information about the location by local governments.
• The Government-to-Business (G2B) model is represented in communication between
local governments and other institutions. This communication includes information
between individual legal entities. The basis of the G2B model concerns the provision
of information, which aims to increase efficiency, reduce transaction costs and pro-
vide real-time information for all participants in the chain [38].
Figure 15. Electronic communication of participants [50].
5. Conclusions
Geospatial data management is vital to all business processes. By introducing digiti-
zation in this area, various interested parties and citizens are helped to beer understand
spatial phenomena, improve communication between interested parties [51] and support
decision-making processes [52].
In the paper, the authors proposed a new model of geospatial data management, es-
tablishing the eSpace and ePlan systems, which is based on the joint creation of value in a
sustainable project society. In accordance with the obtained results of the research, the
necessity of implementing such a model is observed, where the concrete example in the
Republic of Serbia shows that the incomplete Central Register of planning documents
leads to the formation of eSpace, as a comprehensive centralized system, through which
the transparent and efficient preparation and distribution of digitized planning docu-
ments and electronic data. This research adds the additional role of the interaction effect
Figure 14. Graphic representation of connections with geolocations [31].
Keeping in mind internal and external human resources, there is a connection of
several actors in one place: citizens, investors, local self-government units, state and other
institutions. Between them, electronic communication is realized, which includes several
models of communication: G2B, G2C, B2B, B2C and B2E. The two most common models of
communication are G2C and G2B [5] (Figure 15):
•
The Government-to-Consumer (G2C) model is used by potential investors and citizens
to obtain information about locations. The G2C model is primarily concerned with
obtaining information about the location by local governments.
•
The Government-to-Business (G2B) model is represented in communication between
local governments and other institutions. This communication includes information
between individual legal entities. The basis of the G2B model concerns the provision
of information, which aims to increase efficiency, reduce transaction costs and provide
real-time information for all participants in the chain [38].

Sustainability 2023,15, 16009 21 of 24
Sustainability 2023, 15, x FOR PEER REVIEW 21 of 24
Figure 14. Graphic representation of connections with geolocations [31].
Keeping in mind internal and external human resources, there is a connection of sev-
eral actors in one place: citizens, investors, local self-government units, state and other
institutions. Between them, electronic communication is realized, which includes several
models of communication: G2B, G2C, B2B, B2C and B2E. The two most common models
of communication are G2C and G2B [5] (Figure 15):
• The Government-to-Consumer (G2C) model is used by potential investors and
citizens to obtain information about locations. The G2C model is primarily concerned
with obtaining information about the location by local governments.
• The Government-to-Business (G2B) model is represented in communication between
local governments and other institutions. This communication includes information
between individual legal entities. The basis of the G2B model concerns the provision
of information, which aims to increase efficiency, reduce transaction costs and pro-
vide real-time information for all participants in the chain [38].
Figure 15. Electronic communication of participants [50].
5. Conclusions
Geospatial data management is vital to all business processes. By introducing digiti-
zation in this area, various interested parties and citizens are helped to beer understand
spatial phenomena, improve communication between interested parties [51] and support
decision-making processes [52].
In the paper, the authors proposed a new model of geospatial data management, es-
tablishing the eSpace and ePlan systems, which is based on the joint creation of value in a
sustainable project society. In accordance with the obtained results of the research, the
necessity of implementing such a model is observed, where the concrete example in the
Republic of Serbia shows that the incomplete Central Register of planning documents
leads to the formation of eSpace, as a comprehensive centralized system, through which
the transparent and efficient preparation and distribution of digitized planning docu-
ments and electronic data. This research adds the additional role of the interaction effect
Figure 15. Electronic communication of participants [50].
5. Conclusions
Geospatial data management is vital to all business processes. By introducing digiti-
zation in this area, various interested parties and citizens are helped to better understand
spatial phenomena, improve communication between interested parties [
51
] and support
decision-making processes [52].
In the paper, the authors proposed a new model of geospatial data management,
establishing the eSpace and ePlan systems, which is based on the joint creation of value
in a sustainable project society. In accordance with the obtained results of the research,
the necessity of implementing such a model is observed, where the concrete example in
the Republic of Serbia shows that the incomplete Central Register of planning documents
leads to the formation of eSpace, as a comprehensive centralized system, through which the
transparent and efficient preparation and distribution of digitized planning documents and
electronic data. This research adds the additional role of the interaction effect of government
regulatory control procedures between political hazards and risk management [
53
]. Also, it
is necessary to improve the current state of planning documentation and legal regulations
related to the use and construction of land. In this way, the entire process tends towards
the goal of efficient work of public administration and comprehensive and complete
information to the public about the current state and possibilities of using the space.
This is in line with the Strategic Action Plan for the National Spatial Data Infrastructure
of the Republic of Serbia [
54
,
55
], which states that the Smart National Geospatial Data
Infrastructure is based on values that greatly facilitate the access, sharing and use of
geospatial data and services.
The stated goal of the paper is fully aligned with the general goal of the Government
of Serbia [
56
], because it creates conditions for the implementation of all measures aimed at
digitalization and the introduction of electronic services in the management of geospatial
data, which confirms the necessity of implementing part of eSpace through spatial and
urban planning. In this way, the management of these projects, which represent the largest
investments in every society, will be more efficient, which will contribute to a faster and
more significant creation of value for society [
57
]. On the basis of what is described in the
paper, the proposed new model of geospatial data management indicates the advantages
obtained through the application of digitalization.
However, the paper represents a pilot project that should be developed in other
countries as well. The basis for this should be sought on the sustainability of projects
together with social value, service system and co-creation of value.
Author Contributions:
Conceptualization, M.J.-M. and F.P.; Methodology, M.J.-M. and F.P.; Formal
Analysis. M.J.-M. and F.P.; Data analysis, M.J.-M. and F.P.; Writing—original draft preparation, M.J.-M.
and F.P.; Writing—review and editing, M.J.-M. and F.P.; Supervision M.J.-M. All authors have read
and agreed to the published version of the manuscript.

Sustainability 2023,15, 16009 22 of 24
Funding: This research received no external funding.
Institutional Review Board Statement: Not applicable.
Informed Consent Statement: Not applicable.
Data Availability Statement:
The data presented in this study are available on request from the
corresponding author.
Acknowledgments:
The authors would like to thank the Republic Geodetic Authority of the Republic
of Serbia for the support provided in writing the scientific paper.
Conflicts of Interest: The authors declare no conflict of interest.
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