Information transfer in hydrology: experiences of the Global Runoff Data Centre
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1 FRIEND '97 Regional Hydrology: Concepts and Models for Sustainable Water Resource Management (Proceedings of the Postojna, Slovenia, Conference, September-October 1997). IAHS Publ. no. 246, i o Information transfer in hydrology: experiences of the Global Runoff Data Centre WOLFGANG E. GRABS Global Runoff Data Centre (GRDC) do Federal Institute of Hydrology, PO Box 309, D Koblenz, Germany Abstract Politicians and decision-makers are faced with water-related problems of geopolitical importance which have a large influence on life on our planet and which have to be resolved now. The global exchange of hydrological information is a necessary precondition in this situation. A global hydrological database is essential for research and applicationoriented hydrological and climatological programmes at global, regional and basin scales. The Global Runoff Data Centre (GRDC) advocates the controlled access to global hydrological data which allows free access to the data under the provision that the interests of the data providers and the data users are balanced. In this respect, the participation of hydrological services in international science programmes is essential to create a transmission belt between scientific projects and the interests and the capacity of hydrological services. National and international aspects of hydrological information transfer requires the development of more effective transfer mechanisms both: Technically and through simplified procedural processes. To improve information transfer in hydrology, the transfer of hydrological information should be embedded in an information feedback cycle which provides benefits for both: The data provider and the data user. An additional benefit of this feedback cycle is the possibility to network research and applicationoriented programmes and thus contribute to economizing the rising cost for regional and global hydrological research and its applications to operational hydrology issues. In this respect, several policy options for information transfer are discussed in this paper and an outlook is provided into emerging issues of data exchange in hydrology. INTRODUCTION The principal objective of the GRDC is to facilitate and optimize the information exchange in surface water hydrology. Another important objective is to provide decision-makers with hydrological information needed to resolve hydrological problems, e.g. in the management of international river basins. These tasks are fulfilled through intense interaction with water-related programmes of UN agencies, foremost those of WMO, UNEP and UNESCO, other governmental and nongovernmental organizations and data users. At present, the demand for data and information from the different user groups in hydrology is not matched by the supply of hydrological information from data providers. FROM DATA TO PRODUCTS The transfer of hydrological information is the end of a process chain which involves the collection of data, its quality control, processing the data into user-specific
2 14 Wolfgang E. Grabs information and the transfer process of data and information itself. The technologies used for the transfer of information along this process chain determine the technical efficiency of the system and its integrity. The decisions and resulting regulations for data collection and processing on one hand and the adopted policies which regulate the information flow and access to information determine the overall effectiveness of the hydrological information transfer process. The importance of data management and information to execute global change programmes can be highlighted with a figure from the 1995 budget of the US Global Change Research Programme: Out of a total budget of US$ million, or 23% are dedicated for data management and information alone (US General Accounting Office, 1995). RATIONAL FOR GLOBAL HYDROLOGICAL INFORMATION TRANSFER Perhaps the singlemost important rational for the transfer of hydrological information on a global scale is that no single country today is able to bear alone the enormous costs of a global observing system from which national economies could benefit. Regional monitoring and warning of flood and drought events, coupling of atmospheric with land and ocean models, the pollution of the world's oceans through transport of pollutants from rivers discharging into the oceans are top agenda issues. These tasks, problems and the possible solutions to the problems indicated above have a truly global dimension and cannot be viewed from the catchment scale perspective alone. National decision-makers should be convinced that the development interests of individual countries are directly served through the participation in global exchange and the institutionalized sharing of hydrological and related information. WMO has set the frame in which the exchange of information may happen. At its Twelfth Congress in 1995, WMO adopted Resolution 21 (Cg-XII) "Global Runoff Data Centre" which encourages Members "to support the GRDC through the provision of the hydrological data and related information that it needs" (WMO, 1996). In an analogy to resolution 40 (Cg-XII), the Commission of Hydrology (CHy) in December 1996 adopted a draft resolution regarding the exchange of hydrological data and related information which will be discussed by the Executive Council of WMO in June TRANSFER OF HYDROLOGICAL INFORMATION: THE NATIONAL PERSPECTIVE Hydrological services until recently have been viewed in most cases by their governments as basic statistical services which were expected to collect and archive hydrological information of the national territory. As these services in many cases operate under civil service rules and regulations, active marketing of the benefit of hydrological information for the national development and the response to user requirements with meaningful data products has not been a priority of national hydrological services. Thus, despite the growing sectoral demand for water related data and initial investments in hydrological services, the advantages and benefits of
3 Information transfer in hydrology: experiences of the Global Runoff Data Centre 15 hydrological data transfer are not known or simply are not a priority for governmental and nongovernmental organizations. Diminishing support for "traditional" hydrological services and the taking over of data collection programmes by other, more project and market-oriented (semi)-privatized organizations has led to a further fragmentation of data holdings. This continuing process further complicates the exchange of data. The situation is sometimes worse in federally organized countries, where riparian states on top of sectoral competition for water uses also have difficulties to agree on a mutually satisfying allocation scheme. TRANSFER OF HYDROLOGICAL INFORMATION: THE INTERNATIONAL PERSPECTIVE Hydrological services have usually a clearly national scope for their operations. Only very few services have the mandate and the capacity to deal with international partners in hydrology and water resources management. Therefore, at the very basic levels, the understanding of the importance of internationally shared data is little understood and promoted. In addition to institutional weaknesses of services, especially in developing countries, comes the issue of political decisions which impede the cross-border transfer of hydrological information. The idea of possessing an information monopoly of this vital resource is often combined with disagreements between riparian countries regarding water distribution. The opinion that water resources are tied to the national security, integrity and development potential of a nation is a strong factor which severely limits the transfer of information. The situation is worse in the compilation of hydrological information over entire regions. The point is made here that a good part of the problem of international transfer of hydrological information could be solved if national governments defined the value of hydrological information for the national development and based on this assessment highlighted the role of hydrological information in the national development plan for each country. In countries with transboundary river basins, the political will and technical ability of governments must be demonstrated to cooperate with other riparian countries. It may be important to recognize that conflicts between riparian states are maintained in a climate of mutual distrust which in its technical component can be traced to the lack or absence of shared data and information. The sharing of data and information would be a first step in a series of confidence-building measures to overcome a conflict situation on the basis of equal information which can be shared by all partners. The International Law Association (International Law Association, 1987) has formulated the Helsinki rules (International Law Association 1966 with several amendments in 1986). Article 29 recommends that each basin state "furnish relevant and reasonably available information to the other basin states concerning the waters of a drainage basin within its territory and its use of, and activities with respect to, such waters". Though the value of these rules is generally not disputed, its practical implementation e.g. the transfer of hydrological information is slow in many and pending in some cases. Bearing in mind however that over 60% of the world x s freshwater resources are shared in only 200 international river basins, the global importance of information transfer becomes apparent.
4 16 Wolfgang E. Grabs LESSONS LEARNED FROM THE EXCHANGE OF HYDROLOGICAL INFORMATION The transfer of hydrological information requires first of all the vision and political will for regional and even global cooperation in hydrology and water resources management between governments and their hydrological services. (a) While the collection of data is the prime objective of hydrological services, with an often much lesser priority or capacity to process the data adequately for water resources management purposes, the transmission of information halts at the question "Why should I?". (b) Looking at the national and international aspects of hydrological information transfer and related GRDC experience, the development of more effective transfer mechanisms of hydrological information should be prioritized. Information transfer from providers to users is in many cases organized on an ad hoc basis without clearly defined policies. (c) Fragmented data holding and the just evolving concept of the management of distributed databases lead to the development of sector-oriented, project-focused data collection programmes with limited access to cross-sectoral or international users. (d) The limited programmatic scope of many hydrological services is a hindrance to promote the exchange of data which usually is circulated only between government agencies, selected users and contractors. (e) The recognition of the potential economic value of hydrological information which, in many cases cannot be realized by hydrological services, creates an effective block to transfer information: The information is withheld in the expectation that in an indistinct future the service may have the capacity to fully analyse the data and transfer only customized information and not the data. (f) The low level of public recognition of the tasks and capacities of hydrological services has lead to a mental setting where the idea of an information monopoly is created which could be exploited for the benefit of an individual service or a position holder. (g) There is hardly a "transmission belt" between ambitious international scientific programmes and their needs for regional or global data sets on one side and the objectives of national services on the other side. Likewise, scientific programmes hardly find a proper communication channel to include hydrological services as partners and participants of their far-reaching efforts but rather as "dataservants"; an unsatisfactory role for most hydrological services. The possibility of capacity building within these scientific programmes is under-utilized. WMO has a attained a lead role in the development of effective transfer mechanisms where the World Weather Watch Programme can serve as an example. In hydrology, the GRDC is presently the only operational hydrological databank working on a global scale with continued dataflow. Further efforts including an increasing share of funds for Technical Development projects are necessary to maintain and improve this lead role. CONCEPTS FOR THE EXCHANGE OF HYDROLOGICAL INFORMATION The international dissemination of hydrological information does not have a long
5 Information transfer in hydrology: experiences of the Global Runoff Data Centre 17 history and many nations are simply hesitating to allow access to data because potential gains and perceived losses cannot be judged with confidence. The latter can be largely attributed to an insufficient exchange of national experiences in data exchange and the insufficient recognition of positive national feedback when hydrological data is shared on a regional and global basis. In the view of the GRDC, two major concepts to the exchange of hydrological data can be identified: (a) The concept that data acquired from public funds in a civil service structure should be freely accessible and unrestricted for the benefit not only to the national population (who paid indirectly for the data acquisition with their tax contribution), but also to the scientific community whose research results are regional or even global in nature so that a trans-national benefit can be achieved. Access to and exchange of information is also perceived as a confidence building measure between and across nations. (b) The concept that hydrological data are crucial for the socio-economic development of a nation. Therefore it is perceived as politically important that data should be protected from improper use. This could be e.g. in the case of conflicting interests between riparian countries or in a situation where decisionmakers suspect that the access to hydrological information would indirectly reveal internally sensitive issues such as power production, industrial development, agricultural production etc. MODELS FOR INFORMATION TRANSFER Four basic models for the transfer of hydrological data are identified in this paper: (a) Dissemination of data and products to identified users. This would mean a controlled access. From the experience of the GRDC this approach has helped a lot to network researchers who work in related fields and is able to make use of synergistic potentials in research which are less evident with an anonymous access to data and products. This approach also supports the information need of data providers who need feedback as to who is using the data for which purposes and thus underlines the participatory approach of data providers in information processing. This approach requires "User rules" which regulate the dissemination of data. (b) Dissemination of the data through the Internet: This provides free, unrestricted, uncontrolled access except perhaps for commercial purposes. This model requires least administration efforts and follows the "Freedom of Information" philosophy of the United States. It also allows the widest possible dissemination of the data and products. There is no need felt to monitor who is using the data in what context and for what purpose. The data providers do not have feedback on the use of the data. The data may be used without reference of the source and update verification. (c) Dissemination of data for project participants only, until the project has proceeded to a stage where the project participants decide to make data and results public. This approach is close to the data transfer policy of UNESCO's regionally implemented programme Flow Regimes from International and
6 18 Wolfgang E. Grabs Experimental Network Data (FRIEND). The assembly of global data sets and the principle of free and undiscriminatory access to data are difficult to achieve. (d) Case-to-case decision which datasets are open and which datasets should have a controlled access. This model takes into account that many datasets may already be in the public domain (e.g. data from historic archives etc.) and others are restricted for use only for defined purposes. The practical implementation of this model in a daily routine is problematic from an administrative point of view. Though there is a common understanding that data should be provided free for research, it becomes increasingly difficult to distinguish between research and applications as much of today's research is application-oriented. It is a good assumption that many of the expensive global research programmes are funded because of the awareness of funding agencies of the potential or even immediate socio-economic value of the research. Whereas the "free access" model follows the example of the United States, European countries tend to operate various schemes of differential charging of data, which has been an effective regulation instrument in terms of use and access to data. Where the cost of data and its inherent value is becoming apparent in this way, cashscarce programmes and participants especially in developing countries cannot afford research. In a drive for the commercialization of services, costs emerge as an effective barrier to access hydrological data. MILESTONES FOR INFORMATION EXCHANGE Information exchange in hydrology is only taking place when this is politically desired. From the experience of the GRDC, several milestones need to be reached to accomplish the transfer of global hydrological information: Governments and hydrological services must be informed about the benefits of shared information and about the value-added benefit which can be derived from this. The interests of data providers and data users must be recognized and adequately embedded in a data exchange policy. The protocols for the transfer of information must be known to the public and be transparent for all participants. Feedback mechanisms about the use of transferred information and results must be established to close the information transfer cycle. Feedback is also an important motivator to provide information. Programmes of WMO and other organizations which rely wholly or in part on the supply of hydrological data should develop an outreach for a truly participatory approach of hydrological services to participate in these programmes and projects. Though the limited success of international agencies to mediate international water treaties is recognized, little has been done to spell out, categorize and analyse the political reasons for restrictions in information flow in hydrology. The concept of information transfer must clearly spell out where the mutual benefits become evident and intelligible for all partners. This requires grass-root efforts to communicate (and learn how to communicate!) regional and global hydrological issues and their data requirements to the level of hydrological services. Specifically the hydrological advisors and members of working groups in hydrology have a responsibility to "educate" and inform their own services about the international use of data which these services collect and provide guidance and
7 Information transfer in hydrology: experiences of the Global Runoff Data Centre 19 information for national decision-makers who decide about the transfer of hydrological information. Transfer of hydrological information should be embedded in an information feedback cycle which provides benefits for both: The data provider and the data user. An additional benefit of this feedback cycle is the possibility to network research and application-oriented programmes and thus contribute to economize the rising cost for regional and global hydrological research and its applications to operational hydrology issues. REFERENCES International Law Association (1987) Helsinki Rules on the Uses of the Waters of International Rivers. Adopted at the 52nd Conference ot'ila (Helsinki 20 August 1966). ILA, London. WMO (1996) Twelfth World Meteorological Congress. Abridged Final Report with Resolutions. Geneva 1995.
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