Has There Been Enough Response to the MAPPS Litigation?
By: Adena Schutzberg
| (Feb 21, 2007) |
In the past few weeks this and other publications,
along with a few blogs, have discussed the not-as-yet-begun trial
resulting from the Management Association for Private Photogrammetric
Surveyors (MAPPS) et al. suing the United States regarding how the
Brooks Act is implemented in federal law. I've wondered, and other
people have asked me, why it seems so few people care about this
litigation, which may have significant impact on who does what in the
geospatial arena in the future. That's a good question.
Do only a few people care?
Can we accurately say that "few people care"? How would we know? We
have had 13 comments to date on our January 19 article, "February's
Brooks Act Litigation: What Geospatial Practitioners Need to Know."
I believe that article was the first in recent months on the topic, at
least on the Web. That number is perhaps a bit higher than the usual
number for a "hot article" on our site. I do have to point out that
many of the responses spoke not to the litigation, but to the concept
and implementation of licensing of geospatial professionals. That topic
is related to the litigation since the legislation in question speaks
to licensing, though the implementation of licensing (who is licensed
and how that licensing done) is not at issue in the lawsuit.
In researching our article a few weeks ago I searched the Internet to
find background information on the suit. I found quite a few articles
sourced to MAPPS and a MAPPS webpage which includes a detailed history of the
concern from its perspective. An Association of American
Geographers (AAG) webpage offers its perspective and legal
documents.
MAPPS is a business association "dedicated to developing the growth and
improving the bottom line profitability of its member firms." Some
would refer to it as a lobbying organization. Unlike the AAG and the
Urban and Regional Information Systems Association (URISA), for
example, MAPPS is what is referred to as a 501(c)(6)
organization for tax purposes. That means, among other things, it has
quite a bit of leeway to push its agenda in the federal legislature and
elsewhere. AAG and URISA are what are known as 501(c)(3) organizations.
They, too, can push their agendas, but there are restrictions.
Professional organizations have stepped up in opposition to MAPPS'
request for summary judgment in the case. AAG and four other groups
have offered an amicus
brief (pdf). We invited organizations to share their positions.
Some offered formal positions and AAG offered a legal brief ("Responses
on the Brooks Act Litigation"). Several organizations contacted
their memberships on the matter and are preparing articles on the topic
for upcoming newsletters. URISA offered its position statement as
a press release, while other organizations posted resources on
their websites (GISCI,
for example).
Jesse at Very Spatial
offered this piece of anecdotal information: "Everybody I have talked
to about the case has had something to say, so it is surprising that
not more discussion is taking place on the blogs regarding a geospatial
case that has made it to Federal Court ... no matter what the outcome."
Why is it so quiet?
Assume for the sake of argument that this lawsuit, which could have
substantial impact on geospatial professionals, has not reached the
level of discussion that might be appropriate. Why is that? Here are
some suggested answers:
- This is a complex lawsuit. I spent hours trying to understand just the legal aspects of the suit. I knew nothing of the Federal Acquisition Register (FAR) or of the history of the Brooks Act. I was familiar with Qualifications Based Solicitations since I'd heard and read about it in the past.
- The implications of a win or loss by MAPPS et al. are unclear. MAPPS presents one outcome and AAG et al., a different one. These are detailed in this PDF, Section I.
- There's little geospatial professionals can do. This is not pending legislation, where those concerned could mount a campaign to convince our congressional representatives to vote one way or another. This is a trial, where the best those concerned can do is offer an amicus brief on behalf of one side or the other. Creating one is complex, usually requiring a lawyer. Further, such briefs were due on January 24, so that opportunity has passed.
- The geospatial community doesn't have an organization like MAPPS, which actively lobbies for its members. In a recent poll of our readers, 64% said we should form such an organization soon (n=128).
- Some in the geospatial community have nothing to do with federal contracts.
Is it, as our poll respondents felt, time to launch a lobbying organization? It's not a simple question since such an organization would need leadership, and members (individuals or companies) who pay dues. And, of course, there's got to be enough "going on" to justify a long-term commitment. The current suit is one topic that might be explored. Changes in state legislation regarding mapping is a second. Do these define a large enough palette to tackle? What if the geospatial community mounts a fight in Congress for a true NSDI? This was discussed in the context of GIS for public safety years ago by Jack Dangermond of ESRI and Fred Corle of, I believe the now defunct, Spatial Technologies Industry Association (STIA, a 501(c)(6)) at a NSGIC meeting years back. Would that sort of broad goal help justify such an organization?
I also wonder about the role of our professional organizations in such matters. While they have different missions from MAPPS, they do educate their members on legal and professional matters. There has been a flurry of activity in geospatial professional organizations as states have moved to include mapping under the licensure of surveying in recent years. There was another flurry when GISCI created and launched its certification process. And here's a third flurry, as this litigation goes to trial. Can they... should they do more?
Does the geospatial community need to pay more attention to Washington politics? Should more publications cover this beat? Do we have people savvy enough to do so? MAPPS does this via a twice monthly Capital Coverage, a resource on its website for members.
Can it be argued that the geospatial community has done "enough"? That the community truly understands the situation and has spoken out appropriately?
We Have No Answers
While I'm sure many of you would like me and my colleagues to take a position on this case and "tell you what to do," the reality is well-stated by David Smith, in a recent comment on the matter: "[We are] bound by whatever the outcome may be."
The best that we at Directions can do is inform you regarding what's going on, who's saying what, and keep you up to date. We can also encourage you to look forward. What might the geospatial community do to prepare for a "next time," if there is a next time? Speak to your colleagues. Speak to the organization to which you belong. Start a new organization, perhaps via some level of coordination from existing geospatial organizations, if that's needed. If there is something to be learned from this situation, let's learn from it.
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| This is certainly a complex case. As a board member of Florida Chapter of URISA, I have been following this closely since the end of last year. Our organization contributed to the effort by AAG to file an amicus brief in support of the governments position, as this was our limited option. There are many geospatial professional organizations both at the local and national / international level that have been relegated to "user group" relevancy and are loosing members and participation. I do not think we have all become too busy to participate or be active, but that there is little offered by most of these organizations other than the regular newsletter or annual conference. Since licensure of geospatial professionals is too complex to implement (we are too diverse in application of the technology), how can we protect our industry from restrictive legislation or predation by outside industries? Maybe our existing organizations should add lobbying to their mission, and thus become more relevant. |
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| I would like to thank Directions Magazine and Adena Schutzberg for providing access to information in this editorial which helps others to understand what really is at stake here in the lawsuit initiated by MAPPS, et.al. I agree with Adena that this legal case illustrates a possible need to explore the development an educational and perhaps even lobbying organization, to represent the great majority of those in the GIS and mapping community who are not represented by the narrow special interests of MAPPS. First, however, I would like to be clear that I and all others I have spoken to on this issue have great respect for our many friends and colleagues who are surveyors and engineers. We welcome them as a valuable colleagues in the GIS and Mapping Community. However, when organizations that claim to represent them, such as MAPPS and others, repeatedly undertake audaciously greedy attacks against the majority of the larger GIS and Mapping Community, such as this lawsuit, which seeks to prevent all others EXCEPT licensed architects, engineers, and surveyors from contracting for federal mapping work of almost any kind (See Pillsbury Law Firm Legal Briefing on the case, www.aag.org), many of the rest of us in the mapping community are understandably shocked. We do understand that a great number of reasonable individual engineers and surveyors, many of whom we have worked with collabortively and happily for years, are also personally appalled by the over-reaching claims and actions of these organizations that purport to act in their name, and we thank them for their collegial support. The MAPPS lawsuit, however, makes it perfectly clear that this organization's intentions are not "collegial" (read their lawsuit claims, www.aag.org). If MAPPS and related narrow special interests continue to seek to abuse the protections they already have in the Brooks Act, by attempting to exclude nearly everyone else from the federal (and state) mapping worlds, then perhaps Adena's suggestion of a lobbying organization is indeed warranted. If licensed engineers and surveyors really imagine that the Brooks Act was intended to entitle them exclusively to the whole GIS and mapping pie, then perhaps the vast majority of the rest of the GIS and mapping world--including most of those who created the GIS industry itself--may well be left with no alternative but to pursue options for legislative revision or repeal of the Brooks Act itself. At a minimum, there appears to be a clear need for a broad-based geospatial organization which can help educate and inform state agencies, federal agencies, and legislators about about the real nature of the broader geospatial and mapping world. |
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| I'm surprised that no mention has been made in this context of the GITA/AAG project, funded by the US Dept. of Labor. For more info, see http://www.aag.org/giwis/ Although I am not a current member of GITA, there has been LOTS of discussion among its members on the GeoXchange listserv (and other email forums) regarding the MAPPS lawsuit and its potential ramifications on the geospatial industry as a whole. Thank you for reminding us that this lawsuit is moving forward, and please let us know what else we can do to positively impact its outcome! |
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| If you're reading this and would like to do something NOW, please connect with your elected representatives. Letters that describe negative impact to the business community within a Senator or Congressperson's district ARE read and do result in action. If you're not the prinicpal or executive of your company or organization, make sure they are aware of the situation. Draft a letter for their signature and submittal. In that letter include the following: This legislation will bar the vast proportion of the geospatial services community from working with and for the Federal government. What's more, many States adopt Federal standards and guidelines for A&E contracts, too. The proposed MAPPS legislation would prevent [insert your organization here] from contributing to the Federal and State services and concentrate these efforts into the pockets of a few. Additionally, in the event of a Federal-mandated disaster or homeland security event, the present geospatial community would be unable to support and respond to Federal and/or State relief efforts. The Katrina and World Trade Center disasters demonstrated conclusively that geospatial (aka map-based management) is the most effective way to oversee and direct these complex efforts to provide service to citizens. The proposed MAPPS legislation would remove [insert your company or organization here] from supporting our local and allied resources and have a profoundly negative impact on response efforts. Bottom Line: There's nothing like Homeland Security and service to citizens to get a Rep's attention. So send your letters now, before the MAPPS legislation slides under the door and is made law. |
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| While I applaud Archie's energy, I want remind readers that this is not legislation in Congress, but litigation in federal court. The case goes before a judge, ideally today, for a hearing. The judge gets to decide if in fact the FAR is "wrong" that is, doesn't mesh with the intent of the Brooks Act, as MAPPS et al. claim. If so, the judge needs to decide what to do about it. The judge can accept the suggested definition put forward in the complaint or do something else, as I understand it. AAG et al. are actively arguing against accepting that particular definition in their amicus brief. Perhaps someone more knowledgeable than I can comment on the value of contacting representatives in Congress. |
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| Congress made the Brooks Act in the first place, and it's within their power to amend and manage the Federal Acquisition Regulations as they see fit. The FAR should promote the best value for the taxpayer and open competition; the MAPPS proposal for forced QBS does neither. |
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| After reading the amicus brief put forward by AAG, et al. I went from shock and amazement to horror. What were they thinking? As President of MAPPS, an association that represents more than 170 private sector geospatial companies that employ hundreds of thousands of geospatial professional throughout the U.S., I can personally say that what AAG and others believe the lawsuit is about is completely untrue and unfair. The tortured legal argument put forth by the amicus brief that this lawsuit is something other than what it is (an issue about finally clarifying federal procurement) and that it will somehow limit who can compete for geospatial work is simply crazy. This rationale is also discredited by the dozens of federal agencies that currently use QBS procedures every day to procure geospatial services. Folks, this is not about licensing! As I wrote in the February MAPPS newsletter (http://www.mapps.org/supportingfiles/documents/FlightlineFeb07.pdf), “The pending QBS litigation (MAPPS et al v. United States of America, 1:06cv378) has exposed a fundamental lack of understanding of state licensing, state law definitions of surveying, and procurement processes among members of several geospatial organizations, such as the Association of American Geographers (AAG), Geospatial Information & Technology Association (GITA), the GIS Certification Institute (GISCI), the University Consortium for Geographic Information Science (UCGIS), and the Urban and Regional Information Systems Association (URISA), all of whom have filed an amicus brief in Federal District Court in opposition to QBS and claiming that GIS and geospatial activities are not part of the broad architecture, engineering, surveying and mapping field…. …So where are AAG, GITA, GISCI, UCGIS and URISA going with their amicus brief? Are they against professionalism? I don’t think so. Is low bid procurement their goal here? Probably not, as I am sure they all instinctively understand the problems associated with low bids for complex geospatial programs and the risks it poses to the health, welfare, and safety of our citizens. Do they not care about having a viable and vibrant geospatial private sector? No, I am sure that they do care. So why did they file the brief? That is a really good question. From my point of view, it is pretty clear from their public statements that the Boards of these associations either simply don’t understand federal procurement or they have been scared by the bogus possibility of restrictive licensing and business classifications (like having to be an A/E firm) to perform geospatial services. Who knows, maybe they are just receiving poor legal advice.” If folks want to make a big deal about licensing, then let’s get together and work things out, but it has very little to do with federal procurement and QBS. In fact, you would be surprised to find out how close we probably are in our positions. Are the other geospatial associations doing anything to protect the GIS community from restrictive licensing laws within each State? Not that I know of. In fact, last week in Washington State, a bill arrived on the House floor that included photogrammetry and GIS as the practice of surveying. MAPPS and ASPRS quickly joined forces to try to proactively stop this legislation. This is happening in many states and the GIS community is asleep at the wheel (unless they are represented by MAPPS). Wake up folks, MAPPS is not the bad guy. I continue to be disappointed by the misinformation and lack of understanding. The lawsuit is about asking the Government to write regulations that are consistent with federal legislation. We are asking that the competitive Quality Based Selection process be consistently applied from one federal agency to another so the private sector can plan a business model designed to effectively and efficiently compete for professional geospatial services. That is all that is there. What is really wrong with that? What you see is what you get – no agendas. |
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| "The lawsuit is about asking the Government to write regulations that are consistent with federal legislation." Consider this: QBS requires price to be witheld from the consideration process during evaluation, and the paper proposal be used as the sole determinant of capability. Any rational business person in "the real world" takes price into account when judging the value of a service proposal. With price taken out of the equation, how may the government determine the best value for taxpayers? Mr. Allen's line of discussion is disingenuous, and ignores the standards of practice that guide common commercial consideration outside the FAR. The MAPPS proposal fosters restrictive protectionism in service of a network of narrowly-focussed insiders. If the court pleased, they would be best advised to consult with the USDA NAIP program offices to seek opinion from a government entity that has considerable experience with the QBS approach. |
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| Let me start by saying that I have the greatest respect for the surveying and engineering professions. We would be a pitiful society without them. What I do, however, find interesting is MAPPS self proclamation of their qualifications in a field where they have little or no expertise. It is akin to an eye, nose and throat specialist, claiming by some misinterpreted fine point of law, that they should be qualified to direct brain surgeons in their operations. Even if they prevail initially, their shortcomings will soon come to bear, and the law will soon come into question. In my opinion, the mistake that the MAPPS camp is making is to conclude that GIS is all about mapping. It is not. Mapping is just the end product. It is an extremely complex and diverse discipline, which takes a decade to begin to master. The notion that a licensed surveyor can step in solely because of their license and ‘sign off’ on complex GIS manipulations and processes is all but laughable. I manage one of the oldest federal GIS service centers in the nation, and have worked full time there for 23 years. I am also an engineer. I can tell you, that mastering the object oriented COM coding and related development architectures required for modern GIS work at our service center was more study and effort than obtaining my B.S. degree. Case in point: today at work we used Arc Objects manipulations in Visual Studio .Net to generate dynamic link libraries to plug into ArcMap COM frameworks to facilitate integration with a curvilinear finite difference meshes in a numeric hydrodynamic sediment transport model. There are mapping products. Which of you surveyors reading this can tell me that you have the qualifications to sign off on this? Would you stake your license on it? If the case is ruled in favor of MAPPS, it will be because the judge does not understand what GIS really is, and I can see that easily happening. I would predict, however, in the end it is not going to matter, because like the eye, node and throat specialist, making comment outside ones area of expertise usually proves to be an embarrassing endeavor. The industry as a whole will self adjust. Thomas J. Heinzer Manager, MPGIS Service Center GIS Developer; Chemical Engineer U.S. Bureau of Reclamation Department of the Interior CFO, The Michael Thomas Group Inc. theinzer@mp.usbr.gov 916-978-5273 |
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| In response to Mr. Belaney's comments: Mr Belaney said: "Consider this: QBS requires price to be withheld from the consideration process during evaluation, and the paper proposal be used as the sole determinant of capability." Response: Ummn. No, this is not even close to being correct. Firms are selected initially on Qualifications and ranked. Price definitely enters into the award process. Negotiations are entered into with the #1 ranked firm (based on qualifications) and asked to price the project and to refine and finalize a Statement of Work. The Government independently generates an estimate and negotiates with the #1 ranked firm. Award is only made at a "fair and reasonable price to the Government". Otherwise, the Government goes to #2, etc. I have been involved in dozens of QBS procurements (and a few dozen Best Value procurements) and I will absolutely tell you that price is a major factor in award. The pressure on the firm however is different. They know that the award is "theirs to lose". It motivates the company to be fair and reasonable. Please read FAR Part 36. The process is very clear about price and the Federal Government thinks QBS is a "fully competitive" procurement. Mr Belaney said: "Any rational business person in "the real world" takes price into account when judging the value of a service proposal. With price taken out of the equation, how may the government determine the best value for taxpayers?" Response: I agree. Price is part of QBS (see above). The Government independently generates a cost estimate and the work is awarded to the most highly qualified firm and a fair and reasonable price to the Government. Why is that not the "best value" for the taxpayer? Mr Belaney said: "Mr. Allen's line of discussion is disingenuous, and ignores the standards of practice that guide common commercial consideration outside the FAR. The MAPPS proposal fosters restrictive protectionism in service of a network of narrowly-focused insiders." Response: With due respect, for many, the "standards of practice" for geospatial professional services are outlined in State licensing law. Some of these laws outlaw price bidding, understanding that what we do is complex and not a service where corners can be cut. I would submit that QBS is standard practice outside the Government for commercial professional services (this does not include "products" which is a different business model with warranties). As for "narrowly focused insiders", I can only wish! That sounds like envy to me. MAPPS represents most of the private sector geospatial professionals in the U.S. We want full and open competition, just not a race to the bottom that promotes low bid and lacks innovation. Mr Belaney said: "If the court pleased, they would be best advised to consult with the USDA NAIP program offices to seek opinion from a government entity that has considerable experience with the QBS approach." Response: "I would urge you to read the case documents. USDA NAIP figures prominently in the lawsuit." |
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