CHAPTER V. GTOS PROGRAMME ELEMENTS

A. Programme Development

Programme priority ratings

The following levels of priority have been assigned to activities:

Category A - Very important: to be acted upon as quickly as possible;

Category B - Routine activities;

Category C - Important, but implementation can be delayed if necessary (due to personnel or financial constraints).

Policy Development

In the list of required actions that follows it is obvious that many involve the development of various policies for GTOS. These policies are intended to help guide those in control of GTOS to meet successfully future challenges and problems that GTOS will face. Policy development should be started early in GTOS and kept under review throughout. The following policies are considered important:

• Policy on Data and Information Release (A)

• Policy on Publications (B)

• Policy on Public Relations (A)

• Policy on Products (A)

• Policy on Early Warnings (C)

• Policy on Societal Data for GTOS (A).

B. GTOS Programme Areas

1. Key global change issues

The GTOS Planning Group identified five broad but key global change and national development issues which it recommended should be the focal topics for GTOS in its initial development stages. The first meeting of the GTOS Steering Committee (Rome, December 1996) endorsed and accepted this view. The five issues are along thematic lines because GTOS must be directed at specific user needs. They are primarily concerned with anthropogenic impacts on terrestrial ecosystems. The five issues (not ranked by priority) are:

• Changes in land quality;

• Availability of fresh water resources;

• Loss of biodiversity;

• Climate change;

• Impacts of pollution and toxicity.

Each of these key issues will require at least one specialist GTOS network of networks. It is likely that a particular site can participate in more than one specialist GTOS network but it should not be considered obligatory for all GTOS sites to make observations on all five key issues. The most suitable for initial demonstration purposes are probably changes in land quality, availability of fresh water resources and climate change.

2. The Global Hierarchical Observing Strategy (GHOST)

Background

The GTOS Planning Group recognized that it is not possible to know everything, everywhere, all the time. Consequently, if GTOS is to succeed it must use a sampling strategy that provides adequate spatial and temporal resolution but is at the same time practical and cost effective. Such a system, GHOST, was devised by the joint GCOS/GTOS Terrestrial Observation Panel for Climate for use in three main climate-related areas - land surfaces, freshwater ecosystems and ice surfaces - of direct programme interest to GCOS and GTOS, and which could also relate to the work of GOOS.

The strategy is hierarchical and allows at one extreme for a large number of variables to be measured at a few sites for a limited period, and at the other extreme, for a few variables to be measured regularly at a large number of sites. The hierarchy divides fairly naturally into five distinct tiers (although some sampling facilities might straddle more than one tier) but is an incompletely nested system. Models will play an essential role in filling gaps in space and time that are always left by a sampling system. In general GHOST tiers 1 (large area experiments) and 2 (research centres) will generate models which are run, tested, and interpolated using data obtained from tiers 3 (stations), 4 (sample sites), and 5 (remote sensing).

GHOST in the future

The ability of GHOST to produce meaningful data useful to national planners and scientists alike will have to be demonstrated and should form an important goal of the GTOS Prototype Network. In future GTOS activities, the applicability of GHOST to other GTOS programme areas such as biological diversity, and pollution and toxicity, for which it was not designed will have to be tested and demonstrated (Category C).

C. GTOS System of Network (GT-Net)

Rationale

Demonstrating the value of GTOS can be accomplished by confirming that the "network of networks" concept underlying GTOS is workable and realistic. A successful demonstration will be an aid in obtaining future support funds for GTOS activities. The best demonstration will be one in which terrestrial networks are brought together to form a GTOS system of networks (GT-Net), the main aim of which will be to better understand global and regional change.

Background

The GTOS Secretariat prepared a list of existing monitoring networks and programmes which could be possible partners in GTOS and selected those suited to be start-up partners. Criteria for selection included a focus on terrestrial ecosystems, interest in international activities, recognized scientific and technical capabilities, actively gathering data, extent of coverage with at least some coverage of data poor regions, some functional complementarity with other potential network partners, and expectation of programme continuity.

A meeting of Experts on Ecological Networks -held in Guernica, Spain, in June 1997, jointly sponsored by GTOS, GCOS and IGBP and hosted by the Departamento de Urbanismo, Disputacion Foral de Bizkaia - brought together 11 major terrestrial monitoring networks to present their programmes, discuss future plans and ways to collaborate. This meeting confirmed the common ground shared by the networks and the need for a forum and mechanisms to work together. The participants decided to establish a GT-Net and to work toward coordinating the activities of the networks involved around a core set of issues, such as data access and availability, demonstration projects and harmonization of measurements methods.

The GTOS Steering Committee met in Santander, Spain, in June 1998 and further discussed the establishment of GT-Net. In the light of the likely establishment of a range of networks - some thematic and others regional or national - it was agreed that GT-Net would refer to a system of networks, each representing a specific thematic orientation for a region of the globe or a regional effort among nations of a region (see figure 3). Each regional network represents an organized effort, either for a particular theme or habitat type (e.g., glaciers, forests, permafrost) or among adjacent countries (e.g., Poland, Hungary). These organized efforts are extremely important to the functioning of GTOS because they represent collaboration and integration efforts that are maintained outside of the GTOS activity and its limited resources. The networks would supply not only site-specific information of value to GTOS but also syntheses of information at regional levels.

It is important to distinguish two types of regional activities. The thematic networks can provide specific data and information, arising from standard measurements unique to the topic (e.g., permafrost). The national networks are comprised of sites representing different types of habitats (e.g., forests, lakes, coastal areas) and may have core topics (e.g., biodiversity, productivity) that can provide different types of synthesis. There may, and perhaps, should be interactions between the two regional network types as a particular site can be represented in a certain thematic effort as well as an integrated national effort.

Each of the regional networks represented in GT-Net will have a person designated by that network who will serve on a GTOS Network Panel (GT-Net Panel). In this way, each type of network will have a voice in determining how GTOS will operate and the directions in which it will move. The various thematic and regional national networks will host their own meetings and determine their own governance rules. The GT-Net Panel will provide the GTSC with scientific and technical guidance on matters relating to the implementation and operation of GTOS observation programmes, including practical advice on means to facilitate operations.

Demonstration project

GT-Net will undertake projects which demonstrate the effectiveness of linking existing networks by generating data sets which are useful in studying global change. This will serve as a test bed for collaboration among networks and sites, including data sharing and exchange, and obtaining the experience needed for further development of the global terrestrial network. The first project will concentrate on improving current estimates of global terrestrial primary productivity. It will adopt a hierarchical approach and use models which combine both satellite data and in situ observations. A set of output products, which have Net Primary Production (NPP) as their common foundation, will be produced.

The NPP project has two primary goals: to distribute a global standard NPP product to regional networks for evaluation; and to translate this standard product to regionally specific crop, range and forest yield maps for land management applications.

D. Terrestrial Ecosystem Monitoring Sites (TEMS) Meta-database

1. Background

The need to have basic information about the sites where terrestrial data are obtained, and about the programmes which obtain them, has long been obvious and was a basic tenet of the former Global Environment Monitoring System (GEMS) and its Harmonization of Environmental Monitoring (HEM) programme. Without such information it is often difficult to interpret correctly the data that originate from sites since the original reasons for taking the data, the measurement and analytical methods used, and the quality control procedures applied, are not always readily apparent. If data are to be used by others their reliability, compatibility, and comparability must be known. These background information elements are now collectively termed metadata. The Terrestrial Ecosystem Monitoring Sites (TEMS) database was originally developed at UNEP, Nairobi, as an activity within GEMS. Subsequently, TEMS was moved to the Swiss Federal Institute for Forest, Snow and Landscape Research (WSL) in Zurich where it was updated and improved.

2. TEMS information

TEMS is an international directory of metadata about monitoring stations and their activities; it is not a compilation of basic variable data. The current principal objective of TEMS is to document existing long-term monitoring sites which may be suitable for inclusion within GTOS as its participating networks increase and its programmes become more clear. The database contains basic information on site characteristics such as the date the site was established, latitude and longitude, altitude, geology, hydrology, biome, and biological communities present. Brief information about the scientific programmes being carried out at the site or to which site data contribute is also included, as are the names and addresses of contacts.

3. TEMS now and in the future

During 1997 TEMS was adapted to meet the needs of GCOS for climate related information and a number of enhancements were made. New sections on some GCOS networks and on glaciers have been added, and a section on permafrost is planned. TEMS can now be linked directly to basic data sources if this is required. TEMS can be searched by geographic location (latitude and longitude, and country), variables measured, network name, GCOS and GTOS topical areas, and eco-regions.

The TEMS database proved extremely valuable during the planning phase of GTOS. It will be an important tool as the programme move toward full implementation since it can supply metadata on ecological monitoring sites, and at the same time provide scientists and planners with direct links to data centres. It also allows GTOS and GCOS to identify existing sites and to analyze potential gaps in the coverage of critical variables. The need for metadata by all the Global Observing Systems has been stressed also by their Joint Data and Information Management Panel which will make TEMS even more relevant to their programmes.

Following a recommendation made by the Terrestrial Observation Panel for Climate (TOPC) at its last meeting (Corvallis, Oregon, USA, 26-29 May 1998) - and endorsed by the GTOS Steering Committee in June 1998, Santander, Spain - a second version of TEMS will be developed. This will include additional user features and metadata on the networks and sites involved in the GT-Net and NPP demonstration project. Glacier and permafrost networks will be included once they are established and the individual sites agree to participate. The current version would remain as a meta-database of networks and site descriptor, guiding users to the holders of data.

E. Guidance for funding

1. Funding strategy

The funding strategy for GTOS will be to obtain funds to support individual activities, events, projects and products ranging from single technical meetings and publications to longer-term programme activities, rather than to seek massive funds for the support of the whole programme. This is in keeping with the concept of GTOS as being a system that builds primarily on what exists already and does not have large funds of its own. At an early stage of GTOS a long-term funding strategy for GTOS should be developed.

The funding strategy should provide a broad framework that links modular elements defined by donor interests into an overall plan that deals with all critical elements of GTOS. Flexibility and adaptability should be characteristics of the strategy and its use. Major new emphasis should be placed on ascertaining user needs and developing user/donor ownership to the GTOS strategy through participation in its development. Definition of how GTOS products will be used by developing and developed countries to improve information quality and decision making must receive further serious consideration. GTOS should be prepared to modify, where necessary, its current strategy to more effectively meet user and donor needs (without compromising the scientific intent).

GTOS funding strategy makes the general assumption that participating networks will be self funded; it is not part of the GTOS funding strategy to develop funds for participating networks, although there may be some exceptions, especially in start up of programs in developing countries. Considerable uncertainty remains on responsibilities of GTOS versus its participating networks in securing funds for areas of endeavor at the interface; these should be sorted out and definite plans made as part of the funding strategy.

2. Funding plan

In addition to developing an overall strategic framework for GTOS funding, there is need for a shorter term plan for developing funding. The plan should identify:

• critical elements of GTOS that must be supported;

• definition of user-donor-outcome oriented modules for funding;

• potential donors and their specific mandates and interests.

The short term funding plan, covering about three years, should be developed and implemented by the GTOS Steering Committee and Secretariat. With respect to the principle functions of GTOS (see above) - donors might be categorized in terms of their interest in:

• ownership by co-sponsors and their institutional interests;

• funding network development and utilization at the global level;

• maintaining and archiving data, information, and methodologies;

• utilization of GTOS products by developing countries in decision making.

Systematic and ongoing approaches for donor and user engagement should be developed:

• one-on-one contacts with key donors;

• donors participation in GTOS or GTOS Executive Committee meetings;

• one-on-one contacts with key users;

• user ''advisory committee" to GTOS broad engagement of donors in workshops to identify needs and showcase opportunities for GTOS.

3. Funding and the GTOS Secretariat

Role of the Secretariat

The general philosophy is that the secretariat should be kept relatively small and that the operational aspects of GTOS will be vested in the networks. However, certain elements of the total system, as described above, will require sustaining leadership, management, and administration. The principle functions of the secretariat will be to:

• facilitate the engagement of networks and other participants in GTOS;

• ensure the effective utilization of GTOS products by users in developing and developed countries;

• market the GTOS agenda with donors and users;

• ensure appropriate planning, reporting, and communication;

• support the Steering Committee and other elements of GTOS;

• coordinate with other observing systems;

• maintain effective engagement with co-sponsors;

• develop and maintain methods to ensure effective communication with and among collaborators, donors, users, and others (website, inter alia).

Funding for the Secretariat

The start up funding would be used mainly by the secretariat to develop and implement a marketing plan for GTOS and to support initial demonstration efforts. With modules of the GTOS strategy funded by multiple donors, the secretariat would budget for and receive funds from individual projects to support administrative and management costs.

Ongoing core support from the co-sponsors for the secretariat will be required to stabilize ongoing activities and staffing and to bridge gaps in project funding which will occur from time to time. The short term objective for the secretariat should be to acquire funding to support at least three professional staff.

4. Funding and the Co-sponsors

By accepted United Nations procedure it is the responsibility of the Co-sponsors to arrange adequate funding for any joint programme that they have formally agreed to sponsor. Thus it is the Co-sponsors who officially must seek the needed funds for GTOS if they cannot adequately budget for its needs from their own resources. However, the GTOS Co-sponsors can, and should, delegate some of that authority otherwise they will find themselves also responsible for carrying out all the routine GTOS fund raising associated with obtaining normal outside support for GTOS projects.

This routine fund raising should be carried out by the GTOS Secretariat, after consultations with the Chair of the GTOS Steering Committee, operating within the financial and administrative rules and procedures of the host organization (FAO). Additionally, members of the GTOS Steering Committee can help in fund raising by drawing upon their own experience to suggest possible strategies and funding sources. By this arrangement the Co-sponsors are responsible for funding policy and approaches to major donors (the latter can also be delegated) while routine fund raising is the responsibility of the GTOS Secretariat under the guidance of the Chair of the GTOS Steering Committee. The GTOS Secretariat will keep the Co-sponsors and the Chair-person of the SC regularly informed of fund raising needs, actions and progress, and will seek advice and help from them where necessary.

5. GTOS donors

Funds for GTOS activities should be sought from a variety of individual donors ranging from bilateral and multilateral to foundations and industry. To make this fund raising proceed smoothly it is important to understand the aims and goals, sectoral and geographical limitations, and other constraints of each potential donor. The GTOS Secretariat should, therefore, develop a donor database in which a full profile of each donor is lodged and updated regularly to avoid duplication of effort. A GTOS benefits package should also be prepared, stating and illustrating with examples the advantages for participation in GTOS.

Governments

There are relatively few global environmental and ecological monitoring and observing activities. At national and regional levels, however, there is an enormous data collection effort since only governments have the technical capacity and financial resources to run long-term monitoring and assessment programmes and their associated databases and analytical centres. The latter activities would benefit materially from mutual association through a liaison mechanism like GTOS that would allow each to access reliable related data from other geographical areas not readily available to it at present.

Most governments would benefit by participation in GTOS because of the insights that participation will provide into achieving sustainable development and the efficient and wise utilization of renewable natural resources. Without the involvement and participation of governments in GTOS progress in developing GTOS will be slow. It is important, therefore, that at an early stage of GTOS governments be made aware of GTOS and the potential benefits to be gained by association with it. The GTOS benefits package would help to bring about this awareness. In an actual approach to a government, this package would usually be supported by other material outlining the benefits that would arise from the participation of that particular country.

Agencies and organizations

Existing monitoring and observing networks are run under the authority of controlling bodies and have their own programmes with their own goals and objectives. Those operating these networks may not easily see why they should agree to have their network become a participant in a new observing system which does not have a large budget. GTOS must, therefore, have clearly thought out ideas on the benefits that association with GTOS would bring to a particular network before discussions with that network are opened. The potential gains of participating in GTOS to agency and organization scientific programmes should be made clear. The GTOS benefits package will be a valuable background tool to discussions with potential partner networks.