Canada and Agenda
21Canada and Agenda
21
CHAPTER 40
Information for Decision-Making
-- Robert Valantin and Heather Creech --
Robert Valantin is the Director of Information and Communications Technology at the International Development Research Centre (IDRC). Heather Creech is an Information Scientist at the International Institute for Sustainable Development (IISD). The views expressed in this chapter are those of the authors, with input from other stakeholders, and do not represent the views of the IDRC, the IISD or the Projet de Société.
THE NATURE OF THE PROBLEM
The importance of information as a powerful resource to support sustainable development is a theme which recurs throughout Agenda 21. This theme is specifically addressed in Chapter 40, where it is reaffirmed that decisions at any level must be based on sound information. National and international policies required to manage large scale environmental change must be based on sound environmental and socio-economic data, and on information which is global in scope. Decision makers and other users of information should be able to take advantage of the global information resource, and new information technologies, but this requires equity of access to information in both the North and the South. However, Chapter 40 draws attention to the fact that there is a serious gap in the availability, quality and accessibility of data between developed and developing countries. It points out that there is a general lack of capacity in many areas for the collection and assessment of data, for their transformation into useful information, and for their dissemination. It also emphasizes the need for increased collection of relevant data, for improved coordination among information activities, for improved methods for data assessment and analysis, for application of traditional and indigenous knowledge, and for development of indicators of sustainable development.
The Chapter further points out the problems of inadequate management of information, lack of awareness of the value and availability of information resources, shortage of financial resources and trained personnel to manage information, and lack of technology for effective access. It emphasizes the need for transforming existing information into forms more useful for decision-making, for developing mechanisms enabling efficient and harmonized exchange of information, for documenting and sharing the sources of available information, and for developing and facilitating electronic networking capabilities.
PROGRAM AREAS AND OBJECTIVES
The following two program areas, along with their corresponding objectives are outlined in Chapter 40:
(1)Bridging the data gap;
to achieve more cost-effective and relevant data collection;
to strengthen capacity at all levels to collect and analyze data and information;
to develop or strengthen means to ensure that sustainable development planning is based on sound information; and
to make relevant information accessible in appropriate forms at the time required.
(2) Improving availability of information;
to strengthen existing mechanisms of information processing and exchange;
to strengthen capacities in information handling and communication; and
to ensure full participation of countries in programs of the United Nations and its organs for the collection, analysis and use of data and information.
CANADIAN POSITIONS AT RIO
1.Official Canadian Position
As an issue in its own right and as a Chapter in Agenda 21, information was a relative latecomer within the UNCED process. Chapter 40 itself was generally not seen as contentious during the Prepcom process, and indeed Canada did not participate directly in the debate on it at Prepcom IV (New Zealand did so on behalf of CANZ [Canada, Australia, and New Zealand], but mainly to encourage including traditional and indigenous knowledge in databases).
Canadian objectives included:
strengthening the Chapter by focusing on priority areas already agreed to at the International Forum on Environmental Information for the Twenty-first Century (including, amongst others, the need to expand the knowledge base, the need for improved monitoring systems, the need to develop more useful forms of environmental reporting, and the need to strengthen institutional partnerships);
developing a more coordinated package of information initiatives by emphasizing linkages between Chapter 40 and other Chapters and the need for standardized and consistent approaches to data collection;
strengthening the role of technology in improving environment and development information;
strengthening the role of training in collection, dissemination, and maintenance of information;
establishing the connection between information research and institution building.
At one level, the final Chapter did not achieve the degree of focus, specificity, and coordination which some might have wished, although most elements Canada wanted were integrated into the final document. However, at another level, the Chapter can be seen as a success in raising the profile of both information related issues and the value of information for decision-making. Canada has made important investments in its own information infrastructure and in information technology research and development, and has significant expertise in all of the areas identified within this Chapter. The potential for Canadian leadership, collaboration, and services in these areas is enhanced by the delineation of potential areas of work identified in the Chapter and the framework implicit in it.
2. Non-Governmental Organizations
No specific interventions by NGOs on information issues were identified. It is expected that these groups would generally have been supportive of the official position. Certainly, NGOs would seek improved access to data and information for their own work. All groups would wish to see equitable access to public information.
3. Business and Industry
No specific interventions by business on information issues were identified. It is expected that business would generally have been supportive of the official position. Certainly, business would seek improved access to data and information for their own work. While all groups would wish to see equitable access to public information, the private sector would likely wish to restrict access to information which is proprietary or which would give competitive advantages (this position of the private sector was acknowledged by Canada in its statement to the International Forum on Environmental Information). In addition, business would be supportive of the general goals of the Chapter since there are opportunities in the information and information technology sectors, both within Canada and internationally.
4. Indigenous
Indigenous Peoples recommended support for the development of Indigenous knowledge institutions to study, document and support Indigenous Peoples in the use of Indigenous knowledge and strongly believe that these institutions must be controlled and managed by Indigenous Peoples.
Indigenous Peoples identified the need to support the creation of Indigenous Peoples non-government (local, regional, national and international) organizations oriented to development. These are essential to Indigenous Peoples for the purposes of fulfilling their development, capacity building and local control needs. Moreover, Indigenous NGOs are vital for the establishment of new relationships, in terms of interaction and communication, between them and Western NGOs and other international organizations.
COMMITMENTS MADE BY CANADIANS AT RIO
1. Legally-Binding Documents
None.
2. Political Pronouncements
During his disclosure of the National Statement of Canada on June 11, 1992, at UNCED, Minister of the Environment, Jean Charest, announced that the foundation of Canada's Green Plan has been transparency, accountability and inclusion of all sectors of society into the process. Moreover, the Minister stated that in the Canada Green Plan the government has committed itself to transforming its decision-making on policies and projects.
3. Alternative NGO Treaties and Kari-Oca
NGO Treaties
At the same time as UNCED, two major international events were also held at Rio: the Global Forum and the Kari-Oca Conference. At the International Non-Governmental Organization Forum (Global Forum), 3,100 NGOs discussed a number of matters related to environment and development and produced a parallel set of documents: an NGO Earth Charter and 38 Alternative NGO Treaties. Canadian NGOs played a significant role in deeloping the Treaties and took a lead in coordinating their dissemination. Of these treaties, two addressed the issues discussed in Chapter 40.
Communication, Information, Media, and Networking Treaty
The NGOs developed a treaty on communication, information, media, and networking which emphasized: (1) that the right to communicate freely is a basic human right and a necessity for sustainable development, and (2) that access to information is essential to informed decision-making at all levels. The treaty also aimed to make use of indigenous and community heritage as key sources of information.
NGOs committed to working together on the following objectives (amongst others):
to contribute to NGO information networking and to act as two-way communication channels, sending, processing and receiving information to and from their constituencies on a collaborative, fair and non-discriminatory basis;
to establish and strengthen the existing communication channels and networks and their connectivity;
to share and distribute databases on environment and development issues that will provide the basis for a new set of indicators of sustainable development;
to maintain and develop and disseminate an international directory of NGOs and individuals engaged in networking, communication, information activities;
to expand the human resources currently working on these issues;
to promote effective dissemination of NGO messages through radio, TV, and printed media;
to develop and disseminate training materials, training the trainers, and organizing workshops, and seminars;
to establish information centres and e-mail nodes in different countries, particularly the South;
to translate data and information into different languages and formats
The Women's Action Agenda 21 of 1991
Women's organizations have taken the position that it is a basic human right to have access to unbiased information about the quality of the environment. These organizations reinforce the belief that only through wide dissemination of information on environment and development issues will humankind be able to confront the challenges facing us today.
Kari-Oca
The second alternative forum at Rio was the International Conference on Territory, Environment and Development (the Kari-Oca Conference). The Kari-Oca Conference was held immediately prior to UNCED by and for the world's indigenous peoples. More than 650 indigenous representatives participated in meetings and cultural events during the conference. They developed and adopted a 109-point Indigenous Peoples Earth Charter.
DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 40
The need for new and improved data and information management is one of the most prevalent cross-cutting issues of Agenda 21. Virtually every chapter covers aspects of data collection, information networks, clearing houses, collaboration in the exchange of data and information. Chapter 34 in particular addresses the urgent need to develop, strengthen and improve national, regional, and international information systems as the backbone to sustainable development data and information activities. One of the limitations of Chapter 40 is that it does not develop a framework for the data and information needs identified in the rest of the Agenda. Overall priorities among information objectives and activities, and among the information needs of different sectors and regions cannot be set without this framework.
Nor does Chapter 40 provide a critical evaluation of existing systems and institutions dealing with information for sustainable development. Such agents will undoubtedly play a significant role in implementing the objectives of Chapter 40, but no guidelines are set as to how best they can interact. Although Chapter 40 gives due recognition to local and grassroots information needs, there is the possibility that agencies will focus on large scale meta information systems and networks rather than on immediate local needs. With the rapid changes in technology, there is a constant bottom level demand for new equipment, better software and on-going training. The question of the sustainability of small scale information management systems, particularly in developing countries, needs to be addressed. Canada has a growing base of consultants and experts in the design of such systems, and in training, and is therefore well-placed to contribute its expertise to the international community.
Finally, Chapter 40 does not consider the fundamental issue of the purpose of data and information gathering and dissemination. The international NGO community is concerned that data and information should not be collected without consideration given to what the information will be used for. The perception exists that these activities are still in large part focused on resource identification and exploitation, and on the ensuing problems of environmental degradation. A different focus needs to be brought to the role which information can play to support sustainable development.
COMPARISON BETWEEN CURRENT GOVERNMENT POLICY AND COMMITMENTS MADE
Although no hard or soft commitments related specifically to Chapter 40 were made, there are opportunities for the formation of Canadian government policy to support the objectives and activities of this chapter.
Canada lacks at present a national information and communications policy which addresses the technical infrastructure requirements and information needs of government, the private sector, research, and individuals. The content of communications networks is highly regulated, with its traditional focus on the preservation of Canadian culture. Technological developments are closely tied to the industry in the United States. The major infrastructure development on the horizon is Canarie, an initiative to increase the capacity of existing routers and connectors along the Canadian backbone of Internet. Canarie is designed to stimulate business applications on Internet, promote research and development on multimedia utilities, and test out ATM technologies (Asynchronous Transfer Mode protocol for increased data transfer capabilities). However, the federal government is offering limited support to Canarie; little more than one third of the funding for Canarie will come from the federal level. Although the Canadian government was once at the forefront of nations with respect to its support for a national communications infrastructure, it may lose pace with the present magnitude of change.
Other Canadian sectors, private and public, are investing in information systems, networks and technologies. From the domestic perspective, such costs can be justified by the derived benefits, through better resource management, decision-making, and so on. Canada has much to offer in terms of system design expertise, methodologies, models, and technological expertise (for example, in information systems, software, communications networking, remote sensing, training, etc.) Increased attention to the issues in Chapter 40, both within Canada and internationally, will create demand for products and services which Canada (and in particular Canadian business) can meet competitively. Better information flows can ultimately lead to advantages for Canada in trade for goods and services, resource management, and human resource development.
CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS
Although Canada is a leader in information technology, only a sample of specific institutional actions to bridge the data gap between North and South and to improve the availability of information are listed below. Many of the information gathering activities are related to reporting processes within Canada. These can be seen as building blocks to support global monitoring and information exchange. Other activities related to Chapter 40 reflect an interest in identifying sources of information supportive of both sustainable development, and the sharing of expertise and resources.
Canada's position at the International Forum on Environmental Information for the Twenty-first Century focused in part on the need to widen the accessibility of environmental reporting. The State of the Environment Reporting division of Environment Canada has undertaken this challenge. SOE's Environmental Information Network supports the work of the division.
The UNCED Task Group of Environment Canada has undertaken responsibility for identifying and tracking all activities of the federal government and its agencies related to Agenda 21.
In February 1993, the Canadian Council of Ministers of the Environment (CCME) Task Group on Decision-Making held a workshop on the broader aspects of decision-making related to achieving sustainable development. A set of recommendations emerged from that workshop which are currently being reviewed by CCME's Strategic Planning Committee.
The Federation of Canadian Municipalities has also undertaken to create a database of municipal resources, environmental management expertise and innovations. The database can be used to establish partnerships between Canadian and developing country municipalities.
Most of the program activities identified in Chapter 40 fall within the applied research and capacity building mandate of IDRC. Research areas include improving data collection and use; improving methods of data assessment and analysis; establishing comprehensive information infrastructure and policy; strengthening the use of traditional indigenous knowledge; and producing information services better suited to decision-making.
It is the goal of IISD to engage people of all backgrounds from across the world to produce and share information that will help change attitudes and modify behaviour. Its principal project relating to Chapter 40 is the development of the Sourcebook on Sustainable Development database. This database will direct users to the most appropriate and timely print and electronic resources in the area of sustainable development. The database will be accessible through the APC and Internet electronic networks.
NirvCentre/WEB is the Canadian node of the APC electronic network: The Association for Progressive Communications aims to provide a globally-interconnected electronic communications network dedicated to a free and balanced flow of information. Nirv/Centre brings Canada into the stream of computer communications between north and south nodes of the APC network, and hosts the exchange of information among environment and development NGO's in Canada.
OTHER RELEVANT INTERNATIONAL SUSTAINABILITY-RELATED FORA
Canada has been invited to participate in a number of international initiatives related to information management, many of which are focused specifically on environmental information. Several of these are worth noting.
International Forum on Environmental Information for the Twenty-First Century, Montreal, Canada, May 21-24 1991.
At the 1990 meeting of the Group of Seven Summit, Canada proposed that environmental information be improved on a world-wide basis. It was announced that Canada would take the initiative in organizing the International Forum on Environmental Information in the Twenty-first Century. At the Forum, a framework for a "second generation" of environmental information was developed: this contributed to the strengthening of environmental data and information issues throughout Agenda 21. [Environment Canada. 1991. Environmental Information Statement]
United Nations Development Program Sustainable Development Network (UNDP-SDN)
The SDN initiative was proposed in 1992 to stimulate national capacity building for sustainable development using information and communications. It is anticipated that SDN will facilitate access to the global knowledge base using such means as information technology and computer based communications, working both nationally and globally. [UNDP. 1992. Workshop on the Sustainable Development Network].
Representatives of Canadian agencies and NGOs have been invited to advise and assist with the development of the SDN through a series of workshops with developing country participants, and the development of a SDN starter kit for the pilot projects.
North American Workshop on Environmental Information, Mexico City, October 20-22, 1993
Together with SEDESOL in Mexico and the United States' Environmental Protection Agency, Environment Canada organized this trilateral workshop on environmental information. Among the main topics discussed were the conceptual framework for environmental indicator development and environmental information reporting. Participants worked towards the specific objective, to develop a set of common principles to guide the purpose, content, information quality control and the monitoring of appropriate environmental indicators as well as the reporting of environmental information needed for policy development. Canada presented the position, agreed to by all participants, that environmental reporting is a potential tool to bring forward information that stimulates and facilitates the move towards sustainable development decision-making. The workshop concluded with a spirit of encouragement and participation to work towards a North American state of the environment reporting strategy.
SUGGESTED READINGS AND INFORMATION SOURCES
A. Information policy and infrastructure
Canada. Environment Canada. 1991. Environmental information statement. International Forum on Environmental Information for the Twenty-first Century, Montreal, May 21-24 1991.
Canada. Environment Canada. 1991. Proceedings: Environmental Information Forum, Montreal, May 21-24, 1991. Ottawa, Supply and Services.
Canada. State of the Environment Reporting. 1993. State of the environment reporting in Canada. Paper prepared for the North American Workshop on Environmental Information, Mexico City, October 20-22, 1993.
Carroll-Foster, T. (ed). International Development Research Centre. 1993. Agenda 21: abstracts, reviews and commentaries. Chapter 40: Information for decision-making. Ottawa, IDRC.
Fields, D., Ruitenbeek, J. National Round Table on the Environment and the Economy. 1993. "Sustainability and prosperity: the role of infrastructure". Ottawa, NRTEE.
Ontario Round Table on Environment and Economy. 1992. Workshop report on an environmental information policy for Ontario. Toronto, ORTEE.
United Nations Development Program. 1992. Workshop on the Sustainable Development Network, 8-10 October 1992, New York. New York, UNDP.
B. Sustainable Development Information Sources
Earth Negotiations Bulletin. Published by the International Institute for Sustainable Development, 1992 to date.
International Development Research Centre. 1993. Earth Summit. CD-Rom of the official documents from the United Nations Conference on Environment and Development.
International Institute for Sustainable Development. 1992. Sourcebook on Sustainable Development. Winnipeg, IISD.
NGONet. Global Forum. CD-Rom of the documents from the NGO Global Forum [Forthcoming]
University of Victoria. The Centre for Sustainable Regional Development. Sustainable Communities Initiatives. Conceptualizing Sustainability Working Group. 1993. Compendium of principal information sources to support sustainable community development in British Columbia.
C. Electronic Network Information Sources
Krol, E. 1992. The Whole Internet Users Guide and Catalog. Sebastopol, CA,O'Reilly
Quartermain, J.S. 1990. The Matrix: computer networks and conferencing systems worldwide. Digital Equipment Corp. Information in The Matrix is updated by Matrix News, an electronic journal available on subscription through the Internet, email address mn-dist@tic.com.
Rittner, D. 1992. Ecolinking: everyone's guide to online environmental information. Berkeley, CA.Peachpit Press
D. Key Supporters of Sustainable Development Information in Canada
Centre for Regional Sustainable Initiatives,. Sustainable Communities Initiative, P.O. Box 1700
University of Victoria, Victoria, BC, V8W 2Y2.
Environment Canada. State of the Environment Reporting, 4th flr, Emerald Plaza, 1547 Merivale Road, Ottawa, Ontario, K1A 0H3.
International Development Research Centre, Information Sciences and Systems Division, P.O. Box 8500, Ottawa, Ontario, K1G 3H9
International Institute for Sustainable Development, Communications and Partnerships Program, 161 Portage Avenue, 7th floor, Winnipeg, Manitoba, R3B 0Y4.
NirvCentre (The Web), 401 Richmond St. W., Suite 104, Toronto, Ontario, M5V 3A8.
Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c40.htm.
