Ministry of Economic Affairs

Ministry of Foreign Affairs, Netherlands Development Assistance

Ministry of Agriculture, Nature Management and Fisheries

USER REQUIREMENTS STUDY

FOR
REMOTE SENSING-BASED SPATIAL INFORMATION
FOR
THE SUSTAINABLE MANAGEMENT OF FORESTS

FINAL REPORT

April 1999
ITC In cooperation with FAO IKC N NIVR
IBN-DLO WAU DOFI NEO
Fokker Space BV NLR TNO-FEL Vissers Datamanagement
USER REQUIREMENTS STUDY

FOR REMOTE SENSING-BASED SPATIAL INFORMATION

FOR THE SUSTAINABLE MANAGEMENT OF FORESTS

FINAL REPORT

Prepared by

International Institute for Aerospace Survey and Earth Sciences [ITC]

- A. de Gier
- E. Westinga
- S. Beerens

Food and Agriculture Organization of the United Nations [FAO]

- P. van Laake

National Reference Centre for Nature Management [IKC Natuurbeheer]

- H. Savenije

On the basis of Technical Documents prepared by staff members of the collaborating organizations

April 1999
USER REQUIREMENTS STUDY
FOR REMOTE SENSING-BASED SPATIAL INFORMATION FOR THE SUSTAINABLE MANAGEMENT OF FORESTS

Preamble and acknowledgements

This study originates from problems observed in relation to information availability for decision-making purposes in
sustainable forest management as a result of experiences gained in international programmes and processes over the
past decades worldwide. A solution to the problems observed in the supply of information was suggested through the
FAME (Forest Assessment and Monitoring Environment) concept comprising an end-to-end forest assessment and
monitoring system. This is an integrated system, with functions for image data input, transmission, acquisition,
processing, modeling and archiving, including the education and training required for these purposes. This FAME
concept was developed by a number of institutes in the Netherlands and was positively received by, among others,
the FAO and by the Instituto Nacional de Pesquisas Espaciais (INPE) from Brazil both expressing keen interest to
collaborate with the Netherlands in the further development of this concept.

The study aims to address the following issues:

- Assessment of requirements for spatial information in order to support sustainable forest management;
- Preliminary evaluation of the extent to which these requirements for spatial information can be met by existing
and planned remote sensing systems;
- Identification of the requirements for, and components of, an improved information supply mechanism in the
form of an “end-to-end” information system.

Three Ministries of the Government of the Netherlands have sponsored the study: the Ministry of Economic Affairs,
the Ministry of Foreign Affairs (Netherlands Development Assistance – NEDA) and the Ministry of Agriculture,
Nature Management and Fisheries.

The study was carried out by the International Institute for Aerospace Survey and Earth Sciences (ITC) of Enschede,
the Netherlands, in cooperation with:
- Food and Agriculture Organization of the United Nations (FAO), Rome, Italy
- National Reference Centre for Nature Management (IKC Natuurbeheer), Wageningen, the Netherlands
- Institute for Forest and Nature Research (IBN-DLO), Wageningen, the Netherlands
- Wageningen Agricultural University (WAU), Wageningen, the Netherlands
- DO Forestry International (DOFI), Bennekom, the Netherlands
- Netherlands Geomatics and Earth Observation BV (NEO), Lelystad, the Netherlands
- Netherlands Agency for Aerospace Programmes (NIVR), Delft, the Netherlands
- National Aerospace Laboratory (NLR), Amsterdam, the Netherlands
- Fokker Space BV, Leiden, the Netherlands
- TNO-Physics and Electronics Laboratory (TNO-FEL), The Hague, the Netherlands
- Vissers Datamanagement, Wageningen, the Netherlands

The study results have been incorporated in the “User Requirements Study – Final Report”. This Final Report is
based on the detailed study results contained in a number of technical documents as follows:
1. International user identification and platform creation
[DOFI/J.M. Heering]
2. Design of the user needs assessment study
[ITC/E. Westinga]
3. Forest functions, management principles and information requirements
[IBN-DLO/H. Diemont]
4. User needs assessment for spatial forest information; results and analysis
[ITC/E. Westinga; IKC N/H. Savenije]
5. Spatial data requirements in sustainable forest management; A study in four tropical countries
[FAO/P. van Laake]
6. Remote sensing applications for forest management
[ITC/Y. Hussin]
7. User requirements versus existing capabilities
ITC/W. Bijker]
8. Proceedings of the international workshop on the preliminary results of the user requirements study
[DOFI/R. Rowe & J.M. Heering]

This study would not have been possible without the collaboration and support of the user community. A special
word of acknowledgement and appreciation is therefore due to those who actively participated in the interactive
questionnaire survey, the country studies, the international workshop or other activities.

User Requirements Study: Final Report Page i

Abbreviations and acronyms

AfDB African Development Bank

AsDB Asian Development Bank
APFC Asian-Pacific Forestry Commission
ATO African Timber Organization
CCAB-AP Comisión Centro-Americana de Bosques, Areas Protegidas
CCRS Canadian Centre for Remote Sensing
CIFOR Center for International Forestry Research
CILSS Comité Interafricain de la Lutte contre les Effets de la Sécheresse au Sahel
COICA Coordinadora de las Organizaciones Indígenas de la Cuenca Amazónica
DOFI DO Forestry International
ECOWAS Economic Organization of West African States
EFI European Forest Institute
ELCI Environmental Liaison Center International
ENVISAT Environmental Satellite
EOS-AM Earth Observation System – AM
ERS European Remote Sensing Satellite
EU European Union [Commission of the European Union]
FAO Food and Agriculture Organization of the United Nations
FAME Forest Assessment and Monitoring Environment
FRA Forest Resources Accounting
FSC Forest Stewardship Council
GEF Global Environment Facility
GFIS Global Forest Information Service
GFW Global Forest Watch
GILS Global Information Locator Service
GIS Geographical Information System
GO Government Organization
GPF Global Programme on Forests (UNDP)
GRID Global Resource Information Database
IADB Inter-American Development Bank
IBN-DLO Institute for Forest and Nature Management [Min. of Agriculture, Nature Management and
Fisheries, the Netherlands]
ICRAF International Center for Research in Agro-Forestry
IFF International Forum on Forests
IGAD Inter-Governmental Authority on Drought Control and Development in Eastern Africa
IGO Inter-Governmental Organization
IIASA International Institute for Applied Systems Analysis
IKC-N National Reference Center for Nature Management
INPE Instituto Nacional de Pesquisas Espaciais
IPF/CSD Intergovernmental Panel on Forests / Commission on Sustainable Development
IBRD International Bank for Reconstruction and Development
IRS Indian Remote Sensing Satellite
ITC International Institute for Aerospace Survey and Earth Sciences
ITTO International Timber Trade Organization
IUCN The World Conservation Union / International Union for the Conservation of Nature
IUFRO International Union of Forestry Research Organizations
JERS Japan Earth Resources Satellite
LANDSAT Land Satellite
LISS Linear Imaging Self-Scanning
NEDA Netherlands Development Assistance
NEO Netherlands Geomatics and Earth Observation
NFAP National Forestry Action Plan
Nfp national forest programme
NGO Non-Governmental Organization
NIVR Netherlands’ Agency for Aerospace Programmes
NLR National Aerospace Laboratory
NOAA AVHRR National Oceanic and Atmospheric Administration – Advanced Very High Resolution Radiometer
NTFP Non-timber Forest Products
PAN SPOT Panchromatic mode

User Requirements Study: Final Report Page ii

RADARSAT Radar satellite
RESPAS Remote Sensing Processing and Archiving System
SADC Southern African Development Community
SAR Synthetic Aperture Radar
SFM Sustainable Forest Management
SPOT Système Pour l’Observation de la Terre
TCA Tractado de Cooperación Amazónica
TFAP Tropical Forestry Action Plan
TM LANDSAT Thematic Mapper
TNO-FEL TNO – Physics and Electronics Laboratory
UNCED United Nations Commission on Environment and Development
UNDP United Nations Development Programme
UNEP United Nations Environment Programme
URS User Requirements Study
WAU Wageningen Agricultural University
WCFSD World Commission on Forests and Sustainable Development
WCMC World Conservation Monitoring Center
WFI World Forestry Institute
WRI World Resources Institute
WWF Worldwide Fund for Nature
XS SPOT Multispectral mode

User Requirements Study: Final Report Page iii

USER REQUIREMENTS STUDY – FINAL REPORT

FOR REMOTE SENSING-BASED SPATIAL INFORMATION FOR THE SUSTAINABLE MANAGEMENT OF FORESTS

Contents Page

Preamble and acknowledgements i

Abbreviations and acronyms ii – iii
Table of contents iv
Executive summary v-x

1. Introduction 1
1.1 Background 1
1.2 Context 2
1.3 Study objectives 2
1.4 Study execution 3
1.5 Report structure 3

2. Study design 4
2.1 Study process 4
2.2 Forest functions and management principles 4
2.3 Classification and identification of users 5
2.4 User needs studies 5
2.5 Inventory and evaluation of remote sensing capabilities 7
2.6 Creation of an international user network 7
2.7 International workshop 8

3 Information needs 9
3.1 Study findings 9
3.2 User group priorities 10
3.3 Sources of information 10
3.4 Deficiencies in information availability 11
3.5 User needs in perspective 11

4. Capabilities of remote sensing-based systems 13

4.1 Inventory of remote sensing-based information systems 13
4.2 Key system requirements 13
4.3 Data capture 15
4.4 Data acquisition and distribution 16
4.5 Processing of data and the use of information 16
4.6 State-of-the-art of remote sensing capabilities for forest management 17

5. Constraints in obtaining spatial information 18

5.1 Study findings 18
5.2 Analysis 18

6. Synthesis 21
6.1 Conclusions 21
6.2 The FAME concept revisited 22
6.3 Recommendations 23

User Requirements Study: Final Report Page iv

Executive summary

Background
Interest in sustainable forest management, which has been observed globally over the past two decades,
has increased the need for proper decision-support systems. The effectiveness of decision-support
systems for sustainable forest management is jeopardized by problems related to the availability of
relevant information within operational constraints, such as timeliness, affordability and accessibility.
Problems of this nature have been under discussion for a very long time and were confirmed in Agenda
21, chapters 11 and 40 and Annex III (UNCED, 1992). The problems were also addressed in various
FAO activities (nfp, FRA), in the regional hearings of the World Commission on Forests and Sustainable
Development (WCFSD), and the European Union studies and more recently by the Intergovernmental
Panel on Forests (IPF) and the Intergovernmental Forum on Forests (IFF).

A solution to the problems observed in the supply of information was suggested through the FAME
(Forest Assessment and Monitoring Environment) concept comprising an end-to-end forest assessment
and monitoring system. This is an integrated system, with functions for image data input, transmission,
acquisition, processing, modeling and archiving, including the education and training required for these
purposes. One of the features of FAME is the capability of receiving the data required for decision-
making autonomously and in a standardized way. This FAME concept was developed by a number of
institutes in the Netherlands and was positively received by, among others, the FAO and by the Instituto
Nacional de Pesquisas Espaciais (INPE) from Brazil both expressing keen interest in collaborating with
the Netherlands in the further development of this concept.

The Netherlands’ Ministry of Economic Affairs, the Ministry of Foreign Affairs and the Ministry of
Agriculture, Nature Management and Fisheries subsequently decided to sponsor a study to assess the
need for remote sensing-based spatial information in general and possibly the need for a dedicated “end-
to-end system”. They commissioned the International Institute for Aerospace Survey and Earth Sciences
(ITC), in cooperation with a number of other organizations including the FAO, IKC Natuurbeheer, NLR,
DOFI and others, to carry out a study into user requirements for remote sensing-based spatial information
for the sustainable management of forests. This document presents the findings, conclusions and
recommendations resulting from this study, which was carried out in the period May 1997 – February
1999.

Objectives
The User Requirements Study focused on:
- Assessment of requirements for spatial information in order to support sustainable forest
management;
- Preliminary evaluation of the extent to which these spatial information requirements can be met by
existing and planned remote sensing systems;
- Identification of the requirements for, and components of, an improved information supply
mechanism in the form of an “end-to-end” information system.

Context
The User Requirements Study was carried out in the following context:
- The main point of departure for this study was the overall objective of sustainable forest
management. For the purpose of this study defined as “managing forest resources and associated
lands to meet the social, economic, ecological, cultural and spiritual needs of present and future
generations” (FSC, 1996)
- This study focused on remote sensing options for data and derived information supply. It is fully
understood that spatial data obtained through terrestrial surveys are in many cases indispensable. For
some specific purposes, terrestrial surveys are (still) the only way of ultimately providing the
information required for example on socio-economic parameters.
- This study concentrated explicitly on information requirements as an essential prerequisite to
achieving sustainable forest management. It is, however, fully recognized that other factors of an
institutional, legal, and political nature may be equally important.

User Requirements Study: Final Report Page v

Study design
A first step in the study was the definition of forest functions (production, conservation, protection and
conversion) in order to specify management principles and information requirements from a theoretical
perspective. This exercise accentuated the multi-functionality of forests and forest management, implying
that information requirements will also be of a comprehensive nature.

A classification and identification was subsequently carried out of users of spatial information for
sustainable forest management (differentiating between the level of administrative operation, type of
organization and type of decision-making authority).

Actual user information needs were obtained through:

- A literature study of the most relevant documentation on the subject;
- An interactive questionnaire survey among 224 stakeholders/users and
- Detailed country studies in Brazil, Nepal, Malaysia and Costa Rica (a study planned in Cameroon
could unfortunately not be carried out for organizational and security reasons).

An inventory was made of the existing and planned remote sensing-based information systems. A
preliminary evaluation was carried out of the capabilities of these systems vis-à-vis the identified
requirements in order to assess the extent to which the spatial information requirements, obtained
through the user needs study, can possibly be met.

The entire study process was supported by the active involvement of the users including the creation of
an international user network by means of participation in, and presentation of, the study at regional and
worldwide meetings of a variety of forestry organizations.

The preliminary results of the study were presented at an international workshop in November 1998 at
ITC in Enschede, the Netherlands, in which 57 experts from twenty countries and a variety of both
national and international organizations participated.

Information needs
The study has revealed a substantial and urgent global need for spatial data and information on forests.
The need for information is particularly observed at a local level (including forest communities and
forest management units) and at sub-national levels (including provincial and state authorities). All
themes that require spatial information are relevant, irrespective of level. This applies to land and forest
cover, forest function allocation, forest types, forest health, bio-diversity, biomass for carbon
sequestration, forest products and stand parameters. Forest fire themes mentioned are fire detection, fire
damage and fire hazard. Furthermore, land tenure, forest dependent communities and socio-economic
parameters are indicated. Site information needs include topography, hydrology, soils and
geomorphology. Most important are the themes of land and forest cover, and forest degradation. The
information requirements in all cases refer to both “state” and “change” parameters.

At local and sub-national levels, nearly all themes have a high priority. At global, supranational and
national levels, a specific priority was observed for information on bio-diversity and carbon
sequestration.

Information is currently derived from a variety of sources. These include secondary sources, such as line
agencies (for site information such as topography, soils, hydrology and land tenure) and primary sources
such as terrestrial surveys (for forest products, bio-diversity, stand parameters and forest health, growth
and development) and remote sensing, both aerial photography and satellite imagery (for land and forest
cover/composition, forest types and fire damage) or combinations of these sources.

The study has further revealed a considerable discrepancy between the demand for and supply of
information. The interactive questionnaire survey indicated that 80% of the respondents need more data
and information, either more recent, more specific or more detailed.

User Requirements Study: Final Report Page vi

The identified user needs reflect existing and short-term information needs as currently perceived by the
users. Within the various user communities a considerable difference exists with respect to the
experience with and awareness of the usability of remote sensing derived information, resulting in a wide
range of perceptions. Moreover information needs are not static. They will change as new technologies
are developed and users become aware of application possibilities. They will also change in conjunction
with changing policies and the development and redefinition/refinement of the concept of sustainable
forest management.

Capabilities of existing and planned (satellite-based) remote sensing technology

The user needs, formulated in forestry terms, were translated into user requirements, using technical
terms, as demands to an information system. Capabilities of existing remote sensing-based information
systems were subsequently compared with (i.e. evaluated against) these technical requirements. This
comparison/evaluation has revealed that LANDSAT TM, SPOT XS and aerial photography are currently
potentially the most suitable options available to meet the priority information requirements for land and
forest cover, forest types and fire damage assessment, although substantial limitations do still exist.
These optical satellite systems and aerial photography are able to provide some information on the
requisite scale. LANDSAT TM and SPOT XS are most suitable for smaller scales (1:50,000 and
smaller), although SPOT XS might supply information on 1:25,000 scale. Aerial photography is more
suitable when more detail (larger scale) is required. NOAA-AVHRR is the best option at the moment for
forest fire assessment on small scales (1:1,000,000 and smaller).

All the systems mentioned above, however, lack the ability to penetrate cloud covers. Although not
claimed as a major problem in the questionnaire survey and country studies (but this might be due to a
lack of experience in the use of imagery), this problem is frequently mentioned in literature and was
confirmed at the international workshop. Satellites equipped with radar sensors, such as ERS-1 and
RADARSAT-1, do not have this problem but both lack the ability to accurately distinguish between
essential land cover classes.

From the point of view of affordability, aerial photography is exceptionally expensive if acquired for the
sole purpose of forestry, while high resolution optical satellite remote sensing imagery is prohibitively
expensive for many users. Satellite-based radar data and low resolution optical data from NOAA-
AVHRR appear to be the least expensive but both lack the ability to meet the requirements.

The evaluation reveals that there is neither now - nor likely to be in the immediate future - a remote
sensing-based information system that can meet all information requirements identified in the study as
being essential for forest management. Furthermore, the evaluation concludes that the information needs
can only partially be satisfied through satellite remote sensing. Aerial photography, terrestrial survey, and
secondary data sources are equally important. This will remain the case even when satellite imagery with
higher spatial resolution becomes available.

Constraints in information supply

The study has revealed a considerable discrepancy between the demand for data and information for
certain themes and the ability of existing systems to meet that demand. This indicates a considerable
under-utilization of existing data sources, caused by a variety of constraints of e.g. a political,
institutional, operational and technical nature. The study shows that accessibility to and affordability of
existing data and information are the major constraints mentioned by all users. Elimination of these two
constraints would satisfy the first priority needs for information on land and forest cover, and forest
degradation.

Lack of user-friendly technology, inadequate data quality, cloud cover and lack of standardization in
methods for data collection and analysis, are also mentioned as constraints of relatively minor
importance. There is, however, no proof at present that imagery exists of all geographical areas of
interest. This means that availability problems may still exist in addition to the usability, timeliness,
accessibility, frequency (number of images per year) and continuity problems.

User Requirements Study: Final Report Page vii

Further analysis has revealed weak policies and organizations, and inadequate staffing and staff
capabilities, which prevent proper management and operation of spatial information systems at a national
level and below. At a national level, there is a lack of an information strategy for data dissemination and
decentralized data management and use (i.e. an information infrastructure). There is no system that
accommodates and integrates data of a diverse nature, such as remote sensing data, terrestrial
observations, and socio-economic data, from a variety of sources and of different qualities. The
distribution of (remotely sensed) data is the weakest part of the chain, from data acquisition to delivery
of the information to the desk of the user. There are no international protocols to facilitate open exchange
of data between users at all levels.

The FAME concept revisited

At the start of the study, the FAME concept was taken as departure point. This concept is to serve
operational forest monitoring and includes all components necessary to enhance sustainable forest
management worldwide: the development of an end-to-end system, comprising simple PC-based
receiving stations, data processing and archiving functions, optionally integrated with a GIS, the
associated education and training, as well as a satellite with a dedicated sensor, covering the world’s
entire surface.

In view of the findings of the study, this concept has been revisited and elaborated resulting in the
following specific characteristics which have to be taken into account for the further development of the
concept and, more specifically, the end-to-end information system which is part of the concept:
- In sustainable forest management information is required on a large number of themes that cannot or
cannot entirely be derived from satellite remote sensing, e.g. socio-economic and political
information and NTFP, bio-diversity, degradation, health and stand parameters. This implies that the
system will use a variety of space-borne, airborne, terrestrial and existing secondary sources.
- Different users require different themes of information originating from different sources (usability).
Depending on the user, the timeliness, frequency, affordability and accessibility criteria will differ.
- The accessibility of data is regarded as being essential: both spatial data to the users, as well as
terrestrial data from users to higher levels (aggregation). This encompasses physical distribution as
well as the policy and institutional framework for decentralized data management.
- Human and institutional capacity building is necessary to enable users to incorporate spatial
information into decision-making processes.

At a national level, an information strategy that will provide the policy and institutional framework in
which it is to operate, including research, training and education, must support the end-to-end
information system. Internationally an end-to-end information system is to be supported by international
protocols for the exchange of data. The proposed end-to-end information system and the environment in
which it is to operate can be schematically presented as follows:

User Requirements Study: Final Report Page viii

The implementation of an end-to-end information system of this kind has been referred to as an
information infrastructure. A number of major components in the information infrastructure can be
identified, i.e. data generation, capture, transmission, reception and distribution, data processing, data
integration and capacity building:

- Data generation and capture: For several themes in sustainable forest management there is currently
synoptic spatial data available, in particular data on forest cover, forest types and for fire damage
assessment. It still has to be established whether there are currently adequate spatial data available to
meet the requirements of operational forest monitoring systems for all geographical areas of interest.
Although the necessity was not established during the study, a dedicated satellite sensor might
address the gaps in synoptic spatial data supply on forest degradation, forest production and bio-
diversity. However, the study revealed that in order to improve information supply in the short and
medium terms, priority should be given to a better and more widespread use of existing technologies
rather than to the establishment of a new dedicated satellite sensor system. The latter might become
an option in the information infrastructure in the longer term.
- Data transmission, reception and distribution: To improve accessibility to synoptic spatial data, data
acquisition (transmission and reception) and distribution mechanisms are essential and they should
therefore be part of the information infrastructure. Another important functionality that these
mechanisms should support is the flow of locally generated data (such as terrestrial observations)
upwards to users at national and international levels. This component only refers to physical
mechanisms for data distribution; policy and institutional aspects are included in the information
strategy.
- Data processing: Many users of spatial information will not have adequate capacity (human,
equipment and software) to handle raw spatial data. Geometric and radiometric correction, geo-
referencing, re-sampling and primary classification are examples of basic operations on spatial data
that require expert knowledge and specific hardware and software. The spatial data will have to be
processed to a degree that suits the purpose of the user. Consequently, the degree to which data must
be prepared is variable, between users and purposes. The processing could take place either by
specialized agencies (data brokers) that directly communicate with the users, or it could be
incorporated as automated procedures in the physical systems supplied to the user.
- Data integration: The users make use of a multitude of data from different sources, of which
synoptic spatial data is only one. All of these have a potential function in decision-making and they
should therefore be appropriately integrated with the spatial data in order to arrive at proper
conclusions. The integration should be transparent to the user.
- Capacity building: Institutional capacity at both policy and technical levels has to be increased to
integrate the information system into operational procedures for planning, management and
monitoring and to ensure its sustainability within an organizational infrastructure. Staff qualities at
all levels need to be compatible with these requirements, requiring large staff development inputs of
an organizational and technical nature. Creation of awareness and formal education and training
needs have to be identified and corresponding programmes set up. National and international
linkages of institutes engaged in capacity building should be further developed and optimized.

Recommendations
The User Requirements Study has clearly revealed a substantial and urgent need for improved
information supply, in terms of quantity, quality, detail and recentness. It has also made clear that
substantial relevant data and information already exist but that these are not accessible for various
reasons. Efforts should therefore be made to make these data and information available through the
establishment of mechanisms for international data exchange and information strategies. This needs to be
supported by the development of new technology to make existing data and information available.
Development of technology to meet the information requirements that cannot currently be met by
existing sensors has no priority for the majority of users at this stage.

The study has further created an interactive process and network of persons and organizations at all
levels from the world forestry community which share the same concerns about information supply.

User Requirements Study: Final Report Page ix

In order to make use of the momentum created by the study, the following recommendations are
proposed for appropriate follow-up action, both nationally and internationally:

1. Put a supranational mechanism or mechanisms in place through an international protocol for the
improved exchange of data and information between users without impeding existing information
supplies.

Currently there are no mechanisms for the exchange of (spatial) data between users, within and
between levels. The distribution of synoptic spatial data (e.g. from satellite imagery) and the
aggregation of local and national data into data sets for use at regional and international levels should
be included in the mechanism.

2. National governments should formulate and implement an information strategy for decentralized
data management for sustainable forest management.

Creating awareness plays an important role in improving the data supply. Political leaders and the
general public should become more aware about the need for a sustainable use of the forests and the
role that information plays in planning, management, assessment and monitoring. This increased
awareness should result in commitment that can resolve part of the bottlenecks encountered in the
distribution of existing data, by permitting general use of spatial data and by providing sufficient
financial resources to acquire and process data.

Many countries have policies and procedures that prohibit or limit the distribution or use of spatial
data. The information strategy should provide the framework in which this flow of data is possible,
while simultaneously safeguarding other national interests.

3. The developed information strategies should be implemented. This could be done by validating
and further tailoring the revisited FAME concept through pilot projects. These should encompass
the complete flow of information from data generation and capture to the presentation of
information to the user.

The pilot projects serve to develop and validate a physical implementation of an information
infrastructure for a limited number of users (with different profiles) in a relatively short period.
Initially these will make use of existing technology and products. Specific user-friendly technology
may have to be developed for the users, providing integration of the different data sources. For
satellite imagery, local receiving stations could be installed and reduced prices for images should be
negotiated. Existing data sets should become more accessible. Capacity building material will have to
be developed.

In the meantime research has to be carried out to further elaborate the possibilities and limitations of
existing and planned systems (availability, usability, frequency etc.) and to assess detailed
requirements for technology to be developed. In addition, refinement of user needs and prioritization
should be continued.

The necessity of developing technology or data products that are not currently available should be
guided by the findings from the pilot projects. This also applies to the actual development of new
technology and/or data products, aiming at covering the identified gaps in information supply. Even
when initiated at present, such development would only give results in the longer term.

4. Capacity building modules have to be developed and applied for the different categories of users of
the information systems.

The users of the end-to-end system will require training in the operation of the system. Their
organizations may have to adjust their working procedures and decision-making to incorporate the

User Requirements Study: Final Report Page x

 information infrastructure. The different management operations (planning, monitoring etc) require
different kinds of training.

In view of the clear perspective that emerged on the desirability of an operational end-to-end system and
its main characteristics for supporting sustainable forest management at local and national levels, it is of
key importance to maintain the current global interest in the revisited FAME concept and its
implementation. The many (inter) national initiatives in the field of spatial data management and
sustainable forest management and the technological developments can provide additional inputs or
components to the end-to-end system during its further development.

User Requirements Study: Final Report Page xi

1. INTRODUCTION

1.1 Background

Increased interest in sustainable forest management, which includes inventory, planning, monitoring and
control, both nationally and internationally, has increased the need for proper decision-support systems.
The timely availability of information is a basic prerequisite for the quality and effectiveness of such
systems. Information required for these systems comprises both spatial parameters (geo-referenced
information such as the area and location under different types/qualities of forests) and non-spatial
parameters (e.g. availability of staff and budgets).

Problems related to information availability for these decision-support systems have been observed for
many years and have been confirmed in UNCED 1992, Agenda 21, chapters 11 and 40 and Annex III.
UNCED’s action programme D states for example that “effective and equitable availability of
information generated at local, provincial, national and international levels …. should be ensured”. A
variety of studies carried out worldwide have confirmed the findings of UNCED. Although remote
sensing is generally acknowledged as being used worldwide for forest management, constraints such as
usability, availability, accessibility, affordability, timeliness, frequency, cloud cover, data comparability
(standardization) and dedicated hardware and software are invariably mentioned.

In 1997 the Intergovernmental Panel on Forests restated the importance of accessibility to information,
emphasizing the need to review and improve information systems. Follow-up discussions between the
International Union of Forestry Research Organizations (IUFRO), Center for International Forestry
Research (CIFOR), World Conservation Monitoring Center (WCMC), World Forestry Institute (WFI),
Food and Agriculture Organization of the United Nations (FAO) and European Forestry Institute (EFI)
resulted in the idea of a Global Forest Information Service (GFIS), using the Internet as a main
communication tool.

The issues related to improved information supply for sustainable forest management have raised the
interest of several institutes in the Netherlands, eventually resulting in the concept of an “end-to-end”
system of information supply for sustainable forest management under the name “FAME – Forest
Assessment and Monitoring Environment”. This FAME concept was positively received by various
organizations including the FAO and the Instituto Nacional de Pesquisas Espaciais (INPE) from Brazil
both expressing keen interest in collaborating with the Netherlands in the further development of this
concept.

All organizations mentioned above recognized that actual user requirements had to be identified and
confirmed in sufficient detail. It was furthermore recognized that it was necessary to evaluate the extent
to which existing and (short-term) planned (remote sensing) systems could already fulfil the information
needs for sustainable forest management. At the same time it was realized that an assessment was
warranted as to whether an “end-to-end” concept would indeed be the best solution. FAME is described
as:

an operational forest monitoring programme including all components necessary to enhance sustainable
forest management worldwide, involving education and training and the development of an end-to-end
system, comprisingof very simple PC-based receiving stations, data processing and archiving functions,
optionally integrated with a GIS, as well as a satellite with a dedicated sensor, covering the world’s
entire surface.

A study was subsequently commissioned by the Netherlands Government to provide more insight into the
various issues under the title "User Requirements Study for remote sensing-based spatial information
for the sustainable management of forests" [further referred to as “User Requirements Study” or
“study”].

User Requirements Study: Final Report Page 1

1.2 Context

The User Requirements Study has been carried out in the context of a number of premises and
definitions:

The main point of departure for this study has been the overall objective of sustainable forest
management. For the purpose of this study the definition of the Forest Stewardship Council was used.

Sustainable forest management “managing forest resources and associated lands to meet the social,
economic, ecological, cultural and spiritual needs of present and future generations” (FSC).

The focus of this study has been the extent to which remote sensing-based spatial information can
provide viable contributions to achieve sustainable forest management. It is understood that remote
sensing is not the only option to obtain spatial data. Other sources such as terrestrial surveys are in many
cases of equal or greater importance. For certain purposes terrestrial surveys are (still) the only way of
ultimately providing the information required for decision-making, such as for socio-economic
parameters. Remote sensing-based information has in these cases been assessed as alternative or
complementary to terrestrial surveys. In any case these terrestrial data are required for ground validation
of remote sensing-based spatial information.

This study initially concentrated explicitly on information requirements as an essential prerequisite of

achieving sustainable forest management. From the start of the study it was clear that other factors of an
institutional, legal and security nature were of equal if not greater importance to achieve these objectives.
These other factors, however, have not been the principal subject of analysis in this study, although
during the analysis/synthesis phase of the project, attention was given to these aspects.

During the study many contacts were established with ongoing similar initiatives (and the groups and
organizations behind them) dealing with information supply. These initiatives confirm that this need is
one that is generally felt in the forestry community. Much benefit was derived from their experiences and
the results have been incorporated in the (design and analysis of) this study where necessary.

For the purpose of clarity, the concepts of “data” and “information” have been clarified as follows:

“Data” comprise raw figures and facts, such as pixel values on a satellite image. Data are not suitable
for decision-making. For this purpose the data need to be processed and transformed into information,
e.g. into a forest cover map, with the detail required for decision-making at the specific level ( e.g. a
local forest manager). This information may also be transferred to the next higher level of decision-
making in the organization, where it may be aggregated with other sources of information and data to
support proper decision-making at that level.

1.3 Study objectives

The objectives of the study may be summarized as follows:

- Assessment of requirements for spatial information in order to support sustainable forest
management;
- Preliminary evaluation of the extent to which these spatial information requirements can be met by
existing and planned remote sensing systems;
- Identification of the requirements for, and components of, an improved information supply
mechanism in the form of an “end-to-end” information system.

User Requirements Study: Final Report Page 2

1.4 Study execution

The study, including an extensive period of administrative preparation, was carried out in the period May
1997 – February 1999. It was conducted by a consortium of organizations with the International Institute
for Aerospace Survey and Earth Sciences (ITC) in a coordinating role, together with the Food and
Agriculture Organization of the United Nations (FAO), National Reference Center for Nature
Management (IKC N), DO Forestry International (DOFI), the National Aerospace Laboratory (NLR) and
several other organizations in the Netherlands.

1.5 Report structure

The results of the study have been reported in a series of eight Technical Documents (listed in the
preamble). This final report is based on a synthesis of the information derived from these Technical
Documents.

Chapter 2 describes the design of the study, based on the original project proposal and Technical
Documents 2 and 3.

Chapter 3 presents the spatial information needs for different user groups according to theme, scale and
frequency. The content of this chapter is mainly based on Technical Documents 4, 5 and 8.

Chapter 4 summarizes the evaluation of capabilities of existing and planned remote sensing systems to
meet present information requirements and is based on Technical Documents 6, 7 and 8.

Chapter 5 presents the study findings on the (constraints in) accessibility to data and information, based
on Technical Documents 4, 5 and 8.

Chapter 6 provides a synthesis of the findings including conclusions and recommendations for follow-up.

User Requirements Study: Final Report Page 3

2. STUDY DESIGN

2.1 Study process

A schematic overview of the subsequent steps (the process) which were undertaken in the study is
presented in Figure 2.1. These steps are elaborated in the subsequent paragraphs.

Figure 2.1 User Requirements Study - Flow of activities

2.2 Forest functions, management principles and information needs

Information needs are very much related to the forest functions to be sustained. Forests are in principle
multi-functional. Although not always compatible with each other under all circumstances, each
individual function is important for society. With increasing insights and recognition of the importance
of forests and their ecological function during the past decades, the concept of sustainability has
broadened its content to include a wide range of ecological, social, economic and cultural functions. The
emphasis now is increasingly placed on the multi-functional use of forests. Hence, the overall principle
in modern forestry has evolved from “single-purpose management” to ”multi-purpose management”,
aiming at an optimum combination and integration of forest functions. Whatever the specific purposes of
management in a specific situation, it will have to be economically, socio-culturally and ecologically
sustainable.

Forest areas all over the world are very heterogeneous, biologically, socially and culturally. There is a
large variety of natural and man-influenced forest types, each with its specific composition, ecological
functioning and carrying capacity. These forests are used by different users for different purposes under a

User Requirements Study: Final Report Page 4

plurality of ownership conditions and socio-economic settings. Hence the specific optimum combination
of forest functions is very location specific. In forest management planning, forests are usually classified
according to their main function: production, protection and conservation. Furthermore forests are
sometimes also classified as conversion forest since the area has been earmarked for conversion into
another land use. There is consequently a diversity of forest management situations, each of which may
be expected to have different needs for spatial information.

2.3 Classification and identification of users

It was clear from the start that user involvement would be the key to successful completion of the study.
The users were the main source of information for, and throughout, the study.

Different criteria for classification of user groups have been identified:

a) Level of (administrative) operation: worldwide, regional, national, local (management unit)
b) Type of organization: governmental, non-governmental (profit / nonprofit)
c) Type of decision-making authority (purpose for which information is needed): policy (strategic
planning); financing, resource management.

On the basis of the first three criteria, the relevant users (organizations) were identified as summarized in
Table 2.1. Users were consulted in all major ecological zones: tropics, dry zones, wet zones, temperate
and boreal zones, with the emphasis on tropical regions.

2.4 User needs studies

The actual user needs studies consisted of three elements: literature study, questionnaire survey and
country studies

Literature study: Interesting information was already obtained at a very early stage from literature and
documentation on similar initiatives. The latter was the case for a number of geographical regions such
as Europe, which allowed for a limitation of the geographical scope for both the questionnaire survey and
the country studies. A total of 28 relevant documents were studied in detail.

Questionnaire survey: A questionnaire survey was designed and distributed via contact persons and via e-
mail and fax among potential user respondents from a list prepared on the basis of information provided
by FAO, IKC N, IBN and ITC. Initially 496 persons and/or organizations were selected (worldwide in all
major ecological zones with the emphasis on tropical regions) for inquiry, 95 of which appeared to be
difficult or impossible to reach. Eventually 401 invitations to complete the questionnaires were
distributed; a total of 150 persons replied (15 by fax and 135 by E-mail). This is a response of 37 %.
Through an announcement made on the Internet, a further thirteen participants sent in a completed
questionnaire, in most cases shortly after the site became accessible. Through interviews at the XI World
Forestry Congress in Antalya, Turkey, a further fifteen completed questionnaires were obtained, while
via contact persons in six countries a total of 57 persons were interviewed. In total 235 questionnaires
were completed of which eleven were not considered suitable for further analysis. Consequently a total
of 224 questionnaires were used for analysis.

Country studies: User needs and organizational set-ups for forest management were studied in detail in
four different countries, namely Brazil, Nepal, Malaysia and Costa Rica. A study planned in Cameroon to
study forestry in semi-arid regions did not materialize due to logistic and security problems. In each of
the four countries an inventory was made of the information flows between users at different levels. In
addition, the management principles and information requirements in relation to forest functions were
described for different organizational levels to serve in the synthesis of the study results.

User Requirements Study: Final Report Page 5

Table 2.1 Main categories of users of spatial information for forest management 1

LEVEL WORLDWIDE REGIONAL NATIONAL LOCAL

TYPE IGO NGO IGO NGO GO NGO GO NGO
Policy - FAO-NFP - WRI, - Regional NFP- - ELCI - Ministry of - Environmental & - Regional & - farmer grou
development/ Support Unit, - WWF Coord.-Unit - COICA Planning Conservation NGO’s, local govt- - user groups
Policy - UNEP - IUCN - TCA - Rainforest - Forest - Rural Development bodies
Influencing - ITTO - WCMC - CCAB-AP Movement Departments NGO’s
- Convention on - CIFOR - SADC - EFI - National NFAP- - Federations of local &
Bio-diversity - ICRAF - IGADD coordination units indigenous communities
- Wetlands - ATO - Consumer org. of forest
International - Mekong River products & services
Commission - media
- Niger basin
- Helsinki/Montreal
processes, etc
Financing - World Bank - AsDB - Green funds - national “green funds”
- AfDB
- IBRD
Forest - WWF - Forest - Certifying bodies, - Regional & - community
resource - FSC Departments - National IUCN & Local Forest organizatio
management - IUCN - Land WWF-bodies Offices forest
Management - National concessions
boards Park - private fore
- Departments of managers, owners
Parks & Wildlife - non-profit
managing b
(foundation

1
The listing of specific (categories of) organizations, particularly under “worldwide” and “regional” must be considered exemplary rather than exhaustive.

User Requirements Study: Final Report Page 6

2.5 Inventory and evaluation of remote sensing capabilities

In order to compare existing information requirements with the possibilities of information supply from
available remote sensing systems and other systems, which are in the process of being developed for
operational use in the near future, an inventory was drawn up of these systems. This inventory covered
most space-borne and airborne optical and radar sensors.

User needs (expressed in forestry terms) were simultaneously translated into user requirements expressed
in technical terms. A "user need" is a need for the supply of data or information on a certain topic. This
includes the way the data is delivered, the speed and frequency of delivery, reliability and processing to
produce the required information. A "user requirement" is specified as the corresponding quantified
demand made to a system.

Once the user needs had been translated into user requirements and the inventory had been drawn up of
the systems with their capabilities, both were compared. An evaluation was carried out in order to assess
the extent to which user requirements can be satisfied with existing or planned remote sensing-based
systems.

During the course of the study, it became clear that constraints in the distribution of spatial information
were of such importance that more attention to these aspects was warranted. This applied to constraints
of a technical nature, but even more so to constraints of institutional, legal or political origins.

2.6 Creation of an international user network

In 1997 the decision was taken by the Intergovernmental Panel on Forests (IPF) that every country should
continue to develop and conserve its forests and forest lands in the context of the national forest
programmes (nfp). For that reason it was felt from the start that the User Requirements Study should
draw on the expertise and knowledge of national experts involved in the nfp-process efforts to develop
forests and forest lands in a sustainable way. At the same time it was recognized that improvement of
forest management can only be effectively pursued through national institutions and local forest/land use
managers. Throughout the course of the study a wide range of organizations and individuals were
approached to solicit support for the study.

In order to benefit from the views and considerations of national forestry experts, the study was
introduced at three regional meetings, in Asia, Africa and Latin America, organized by the FAO to
enhance the implementation of the IPF recommendations. The audience consisted of national experts
involved in the planning and implementation of nfps. In addition to this major target-group, the study was
also introduced to international organizations with a mandate or stake in the development and
conservation of forests.

As such, the views of forestry and/or remote sensing experts of the following organizations were
solicited: the International Institute for Applied Systems Science (IIASA), the World Conservation
Monitoring Center (WCMC), the International Union for the Conservation of Nature (IUCN), the
Worldwide Fund for Nature (WWF), the United Nations Environment Programme (UNEP), the
International Timber Trade Organization (ITTO), the International Center for Research in Agro-Forestry
(ICRAF), the World Bank, the World Resources Institute (WRI), the United Nations Development
Programme (UNDP), the Canadian Center for Remote Sensing (CCRS), the Center for International
Forestry Research (CIFOR) and the World Commission on Forests and Sustainable Development
(WCFSD). Furthermore, the FAO – which has provided the NFAP/nfp process with coordination and
support since 1985– was asked to be a partner in the study and their ideas were incorporated in the
questionnaire used. The International Union of Forestry Research Organizations (IUFRO), the World
Forestry Institute (WFI), the Global Forest Watch (GFW) and the World Conservation Monitoring
Centre (Forest Resources Accounting -FRA) are all developing information supply systems and all draw
on existing information. These organizations/projects may play a role in the follow-up to the study.

User Requirements Study: Final Report Page 7

2.7 International workshop

On completion of the activities, the preliminary results of the study were presented and discussed at an
international workshop at ITC in Enschede, the Netherlands, from 23-25 November 1998. Fifty-seven
experts from twenty countries, twenty government organizations, six international NGOs, five
international organizations, five universities, five private sector organizations and four local NGOs
attended. Participants represented a wide range of information users from local to global levels.
Discussions focused on three areas: information needs, constraints in obtaining data/information and
options for improving data/information supply.

The results of this workshop were integrated with those obtained through the literature study,
questionnaire survey and country studies and the composite synthesis has been incorporated in this Final
Report.

User Requirements Study: Final Report Page 8

 3. INFORMATION NEEDS

3.1 Study findings

The study indicates a substantial and urgent worldwide need for spatial data and information on forests
for the purpose of sustainable forest management. The need for information is particularly observed at
local (forest communities and forest management unit) and sub-national (incl. provinces and states)
levels.

The literature review, the questionnaire survey and the country studies reveal that all user groups require
information, generally on the same themes. This finding (summarized in Table 3.1) was endorsed by the
international workshop.

In terms of importance, however, information on land and forest cover (including general land use
classes such as agriculture) and forest degradation have the highest priority at all user levels. Other forest
themes mentioned are forest function allocation, forest types, forest health, bio-diversity, biomass for
carbon sequestration, forest products and stand parameters. Forest fire themes mentioned are fire
detection, fire damage assessment and fire hazard assessment.

In addition, information needs on land tenure, forest-dependent communities (especially on location and
boundaries of settlements) and socio-economic parameters are indicated. Site information needs include
topography (incl. digital terrain models), hydrology, soils and geomorphology.

In general, users at all levels consider information on both state and change parameters of the different
themes to be important.

Table 3.1 Ranking* of the relative importance by theme for the different user levels

Theme Global Supra- National Sub- Local

national national
Land and forest cover 1 1 1 1 1
Forest degradation 1 1 1 1 1-2
Forest function allocation 3 (1) 3 (1) 1 1 2 (1)
Forest types 2 (1) 2 (1) 1 1 1
Biodiversity 1 1 1 2 3 (1)
Biomass data for carbon sequestration 1 1 1 2 3
Land tenure 3 3 1 1 2
Fire damage 2 2 1 1 1
Fire hazard 3 2 2 1 1
Fire detection 2 2 2 1 1
Forest health 3 3 1-2 1-2 1
Forest products 3 2 2 1 1
Forest-depending communities 3 3 2 1 1
Stand parameters 3 3 3 2 1
Site parameters 3 3 2 2 1
Socio-economic parameters 3 3 2 2 1

* 1 = high, 2 = moderate, 3 = low;

The numbers between brackets are the ranking expressed by NGO representatives, if this differed from the ranking by
GO representatives.

User Requirements Study: Final Report Page 9

3.2 User group priorities

Themes
Although the users at all levels generally mention the same themes on which they need spatial
information, they sometimes also indicate quite significant differences regarding the relative importance
of these themes.

Users at a local level (incl. forest management units and municipalities) and at a sub-national level (incl.
provinces and states) particularly indicate a need for all the themes mentioned with high priority. They
show less interest in information on forest change in relation to the users at national and global levels.
Information on bio-diversity and biomass data for carbon sequestration is given high priority at global,
supranational and national levels. These general findings reflect the tasks and responsibilities of
users/organizations at these various levels. Those at the lower levels are generally involved in operational
management, while those at a higher level are generally more involved in policy development and
influencing.

The study also reveals that few users manage forest from a single-function perspective. The majority of
the users indicate information needs as a basis for multi-purpose forest management. This may be due to
increased awareness on the part of users of the content of the modern concept of sustainable forest
management. Only slight differences are found in terms of information needs between the groups of users
who indicate that either conservation or production is the only purpose of (their) forest management.

Scale and frequency

The study further clearly shows that in addition to the differences in thematic priorities for the different
user levels, there are significant differences in the required scales of information. In general the most
appropriate scales indicated by the different user levels are:

- Global 1:1,000,000 to 1: 10,000,000

- Supranational 1:1,000,000
- National/sub-national 1: 50,000 to 1: 250,000
- Local 1: 1,000 to 1: 25,000

The required scale is usually very much related to the size of the area of interest. This does not
automatically relate to the level at which organizations operate. The area of interest of a state/province of
a large country may be the same as that for a national level organization in a small country. There is a
tendency for a decrease in the need for precision and detail of information from local to global levels. In
this respect it would be desirable if information could be aggregated from the lower to higher user levels
but this is currently not the case in practice, and is often neither possible nor feasible.

The recentness and the required update frequency of spatial information are apparently more related to
the theme of the information than the level at which the information is needed. Information on forest
production and stand parameters is basically needed (for selected areas) on an annual basis. Where forest
fire damage assessment is concerned, information updates are usually required every 1-3 months. In the
case of forest fire detection, information is required on a daily basis. Information on land and forest cover
and land use and vegetation/forest types need a variety of update frequencies varying from 1 to every 5 or
10 years.

3.3 Sources of information

Some specific themes, such as topography, soils, hydrology, geomorphology, socio-economic and land
tenure, are generally obtained from line agencies other than forest departments. Other themes, as for
example in fire hazard assessment, are derived from primary data layers or decided by governments, such
as forest function allocation.

User Requirements Study: Final Report Page 10

A large amount of information, for instance on forest products (including NTFP) and on bio-diversity,
has (so far) only been obtainable from terrestrial surveys, although limited data can be derived from
remote sensing techniques. Information on forest degradation, health, stand parameters and biomass (for
carbon sequestration) is only partially obtained by remote sensing; most of these data are basically
collected by means of terrestrial survey.

General assessment of land and forest cover, forest types and fire damage is generally obtained (apart
from areas with semi-permanent cloud cover) from existing satellite imagery in combination with
terrestrial surveys. Forest fire detection with NOAA satellite imagery is operational and seems to work
well. Information on forest dependent communities is derived from terrestrial surveys. The location and
boundaries of their settlements are derived from aerial photography. In principle this will be possible in
the near future using satellite imagery of high spatial resolution.

3.4 Deficiencies in information availability

The interactive questionnaire survey reveals that 80 % of the respondents need more and better data and
information. More specifically, 54 % of all respondents require more recent data, 51% forest information
on certain themes and 27 % more detailed data and information. These findings have been confirmed by
the results of the literature review and the country studies.

Users at a local level (incl. forest management units and municipalities) particularly ask for recent and
detailed forest information. This is quite similar to the needs at a sub-national level (incl. provinces and
states). Users at a local level also indicate the need for additional topographical information, terrestrial
data and data on bio-diversity.

Only slight differences are found in terms of additional information needs between the small groups of
users who indicate that either conservation or production is the only purpose of forest management. The
organizations explicitly involved in conservation apparently use fewer remote sensing images and request
detailed information on forest area/land cover and forest classes more frequently than those involved in
production. The conservation organizations express a greater need for additional data on bio-diversity,
while users primarily involved in production indicate that they already make more use of data on bio-
diversity. Those involved in forest production use more terrestrial survey data and had more complaints
regarding the data quality.

When comparing continents, the users from Africa, Asia and Latin America more often express a need
for recent data and for training and institution building compared to the users in Europe and North
America. Users in Latin America seem to have a greater need for new technologies, whereas users
elsewhere look more for improved information (quality). Users from Latin America also show more
interest in change data and time series.

Users with policy development and policy influencing responsibilities appear more in need of
information on changes than users concerned with forest management. Government organizations
indicate slightly more a need for change data, while NGOs indicate a greater need for additional detailed
information at a field level.

3.5 User needs in perspective

The user needs as presented in the preceding paragraphs must be considered as a reflection of existing
and short term information needs as perceived at this moment by the different users involved in
sustainable forest management (as defined at this moment). Information needs are not static however.
Needs change for different users at different levels. Needs are changing with regard to emerging
technologies, changing policies and new insights and knowledge on forests and forest management.

User Requirements Study: Final Report Page 11

It is also generally known that new technologies and awareness of application possibilities of new
technologies may result in changing requirements. A certain supply-driven nature is undeniable in this
respect.

With respect to changing policies, national commitments to legally binding conventions (e.g.
Conventions on Climate, Desertification and Bio-diversity), to soft law arrangements (e.g. Agenda 21)
and the practice of sustainable forest management will have an effect on information requirements.
Policies such as these are being translated into principles, criteria and indicators to assess these
sustainable forest practices (e.g. Montreal Process, Helsinki Process and Tarapoto Proposal). New
features include understanding the multi-functionality of forests, coping with the multi-disciplinary needs
of forest management, taking an integrated approach (regarding forest land as part of overall land use)
and being aware of climate change implications of management practices. Sustainable forest management
is an integral part of comprehensive natural resource management; this implies needs for other
data/information from both terrestrial and remote sensing data, particularly with regard to indicators that
are to be used for assessing the viability of these management practices.

User Requirements Study: Final Report Page 12

 4. CAPABILITIES OF REMOTE SENSING-BASED SYSTEMS

4.1 Inventory of remote sensing-based information systems

For the purpose of the User Requirements Study, an inventory was drawn up of all existing and planned
space-borne and airborne remote sensing systems and their potential ability to satisfy spatial information
requirements for sustainable forest management.

The systems which have been included in the inventory and which have been analyzed concerning their
ability to satisfy information requirements for sustainable forest management are:

- Aerial photography: panchromatic, true color, color infrared, B&W infrared

- Scanning – Air: multi-spectral scanning, hyper-spectral scanning
- Scanning – Space: LANDSAT, SPOT, IRS, ERS, JERS, EOS etc
- Radar – Air: NASA Ames CV990, DOSAR, AIRSAR, INTERMP, INTERA
- Radar – Space: ERS-1/2, RADARSAT-1/3
- Lidar / laser – Air: CCRS MkII, APR Laser, Nd-YAG Laser and several smaller systems
- Videography – Air: 4CVS, USPA FPM/MAG, USDA MSCO2, Xybion a.o
systems

Table 4.1 indicates whether data for the different required themes can be obtained with remote sensing
techniques. Only primary data themes are considered here. In addition, the themes which are generally
obtained from line agencies other than forest departments are excluded here.

Table 4.1 Application possibilities of remote sensing types.

Theme Aerial Airborne Satellite Airborne Satellite Airborne Airborne

photo scanning scanning Radar Radar Laser Video
Land and forest cover 1 1 1 1 2 2 1
Forest degradation 1 1 2 1 2 2 1
Forest types 1 1 1 1 2 2 1
Biodiversity 1 1 3 2 3 3 2
Biomass data for carbon sequestration 1 1 3 1 3 2 2
Fire damage 1 1 1 1 2 3 1
Fire detection 1 1 1 x x x 1
Forest health 1 1 3 x x x 1
Forest products 2 2 x x x x 2
Forest-depending communities 1 2 2 2 3 x 1
Stand parameters 1 2 3 1 3 2 2

* 1 = wide range of application , 2 = moderate range of application, 3 = limited application, x = not suitable.

4.2 Key system requirements

User needs, as obtained from the user needs study and formulated in forestry terms, were translated into
user requirements, using technical terms, as demands to an information system. The capabilities of
existing remote sensing-based information systems were subsequently compared with (i.e. preliminarily
evaluated against) these technical requirements.

It was clear from the start of the study that sustainable forest management requires a number of
information themes that cannot or cannot entirely be derived from remote sensing or which are normally
provided by other agencies. These themes have been excluded from further evaluation.

User Requirements Study: Final Report Page 13

In the “translation” of user needs into user requirements, three categories of requirements were
distinguished:
- Functional requirements (e.g. type, detail and scale of information)
- Performance requirements (e.g. frequency of update, operability and user friendliness)
- Premises, restrictions, guidelines (referring to context aspects such as lifetime and affordability)

In each of these categories a number of specific topics were listed. For each requirement category and
each topic within the category, a requirement was formulated based on the user needs. The key system
requirements used for the evaluation/comparison are presented in Table 4.2

In order to simplify the evaluation, a limit was set on the number of information themes. The theme that
stood out as the most important in the study, “land and forest cover”, was used in the further evaluation.
If forest cover classification is possible with sufficient accuracy, information on changes in forest area,
deforestation, fragmentation and reforestation can also be supplied. Furthermore, fire damage
information can then be supplied as well as information (to a great extent) on forest (vegetation) types.

Table 4.2 Key system requirements for land and forest cover assessment

Functional requirements
Classification (level 1) Woody / non-woody vegetation; accuracy >= 90%
Classification (level 2) Forest / shrub land; accuracy >= 80%
Map generation Random location error <= 1 pixel
Time series Stability systematic location error < 1 pixel
Area of interest 10 000 - 1 000 000 km2
Image resolution Scale 1: 25 000; resolution 5-10 m *
Image resolution Scale 1: 50 000; resolution 10-20 m *
Performance requirements
Frequency Every 6 months coverage of area of interest
Accessibility Access to data of area of interest
Operability Minimal number of operator actions (automation)
Communicativity Worldwide quick exchange of data (e.g. Internet)
User-friendliness Easily serviceable (e.g. PC-based system, well-known system parts)
Premises, restrictions, guidelines
Life cycle (service) At least for coming 15-25 years
Autonomy Direct control over the data flow and data processing
Affordability Low-cost data or front-end, low recurring costs for the (end-) user
Availability Area of interest 100% covered
Training/education Training programmes
Impact on organization As minimal as possible
Environmental Withstand harsh environments, e.g. humid tropics
* The first, smallest figure for resolution indicates the resolution related to the scale according to the generally accepted
topographical standards. The second, larger figure indicates the resolution as sometimes used in mapping when more detailed
data are not available.

The FAO approach has been adopted for the classification of forest cover. At level 1 of this
classification, vegetation is split up into woody and non-woody vegetation, and at level 2 the woody
vegetation is split up into forest and shrub land. This two-level forest cover classification is one of the
key functional system requirements to satisfy user requirements for forest cover classification. The
classification accuracy has also been included in the formulation of these key system requirements. For
example the classification accuracy for woody versus non-woody vegetation (level 1) has been
established at better than 90%, while the accuracy to differentiate forest from shrub land (level 2) has
been set at 80%.

Table 4.3 provides a simplified overview of the ability of existing satellite systems and aerial
photographs (panchromatic) to meet identified information requirements with respect to classification,

User Requirements Study: Final Report Page 14

spatial resolution, global coverage, revisit time, area coverage, cloud cover penetration, cost and life-span
of the system.

Table 4.3 Capabilities of the existing satellite systems and aerial photographs (for land and forest cover)

Satellite LANDSAT SPOT SPOT IRS IRS NOAA ERS RADAR Aerial Photo Aerial Photo
SAT
Sensor / Scale TM XS PAN LISS PAN AVHRR SAR SAR 1:25,000 1:50,000
Woody / non-woody vegetation + + - + - - - - + +
Forest / shrub land + + - + - - - - + +
Scale 1 : 25 000 - - + - + - - + + +
Scale 1 : 50 000 - + + + + - + + + +
Global coverage + + + - - + - + - -
Revisit every 6 months + + + + + + + + - -
Area cover of 1000 x 1000 km + + + + + + + + - -
Observe through cloud cover - - - - - - + + - -
Approx. cost (US$) per 1000 km2 108 624 814 155 582 0.005 98 15 150,000 100,000
Life span > 15 years + + + + + + - - + +

Note: + = capable; - = not capable

The findings summarized in Table 4.3 reveal that there is no worldwide system (and sensor) which
covers the requirements and overcomes the constraints mentioned by the users. The following sections
provide a more detailed analysis of the capabilities of the three major parts of a complete information
system (using satellite imagery) from sensor to user: data capture, data acquisition and distribution, and
data processing and the use of the information.

4.3 Data capture

Classes
The forest classes are clearly distinguished with LANDSAT TM, SPOT XS, IRS LISS and aerial
photographs. With TM more classes can be distinguished than with SPOT XS. But production of 1:
50,000 scale maps is only possible with SPOT XS. TM is more suitable for scale 1: 100,000 or lower, but
is also used at 1: 50,000. IRS LISS has similar capabilities, but is not available worldwide. Aerial
photographs are still the best with respect to classes and scale (detail) but in most cases are too
expensive.

Resolution
NOAA-AVHRR is not suitable for most forest management purposes, except for forest fire detection.
This is due to the low spatial resolution and the impossibility of distinguishing between woody/non-
woody and forest/shrub classes. EOS-AM (planned) will only be able to cater for those users that are
satisfied with a spatial resolution of 10-20 metres.

Coverage
In order to reach as many users as possible, a system should operate worldwide, covering all forested
areas. For a global coverage, data acquisition by airborne remote sensing or field survey alone would be
too labor-intensive, time-consuming and therefore expensive because of the large area, the difficulties in
accessibility and the desired frequent update of data. It has to be realized, however, that for individual
countries and on a national or local level, airborne sensors might play an important role because of their
higher spatial resolution and more advanced sensors not yet available on satellites. These advanced
airborne sensors are for example high resolution, hyper-spectral sensors and multi-band, multi-
polarization radar sensors. If worldwide coverage is required, this implies that data acquisition is
economically feasible by using space-borne remote sensing (combined with terrestrial validation). At this
moment only LANDSAT, SPOT and RADARSAT provide global coverage.

User Requirements Study: Final Report Page 15

Cloud penetration
Although not claimed as a major problem in the questionnaire survey and country studies, possibly due to
a lack of experience with the use of imagery, the problem of cloud cover is listed in literature and it was
confirmed at the national workshop. Cloud cover hampers all optical airborne and satellite sensors.
Frequent passes of the satellite over the same area (e.g. NOAA-AVHRR) increase the probability of
obtaining a cloud-free image, or give the possibility of mosaicking images to obtain a cloud-free image.
However, the first solution (frequent revisit) is at the expense of spatial resolution and the second
considerably increases the cost of data acquisition. But even then, some areas will never be cloud-free, so
100% global observation is not possible. Cloud cover does not hamper radar remote sensing. However,
the existing radar sensors on RADARSAT 1 and 2, ERS-2, ENVISAT (planned) and JERS-1 (recently
shut down) do not give satisfactory classification accuracy for forest cover mapping. This could be
overcome by using a radar sensor with a different frequency and polarization, as experience with
airborne radar sensors has shown.

4.4 Data acquisition and distribution

The users have indicated that access to data and information is a major problem. They cannot acquire
remotely sensed data or cannot access existing information in other organizations. This implies that
information should ideally reach the desk of the user through autonomy in data acquisition and
processing. The acquisition of satellite images in a number of areas is hampered by the absence of
receiving stations. In that case it is impossible to transmit an image of an area when the satellite is not
within the range of a receiving station. But even in case of satellites that have an on-board tape recorder,
a satellite cannot continuously acquire data due to power constraints or scheduling prioritization.

Furthermore, political and communication issues can prevent users from acquiring images from a
receiving station, even if the images have been recorded and downloaded. This can be overcome by
increasing the number of receiving stations, including local receiving stations for individual
organizations or groups of organizations. As information systems should be low-cost and user-friendly,
receiving and processing should preferably be PC-based (available and serviceable all over the world at
relatively low cost) and as automated as possible.

Until now, low-cost receiving stations, based on PCs, have only been available for receiving NOAA-
AVHRR data. These stations cost less than US$ 25,000. The RAPIDS mobile receiving station is also
PC-based and can be used for receiving data from SPOT and ERS satellites. Potentially, other satellites
can be added to the capability. However, this receiving station is more expensive, about US$ 500,000.
For the existing earth observation satellites, fees have to be paid for the data received.

Quick exchange of data and information worldwide has also been indicated as being very important. This
can be achieved by using Internet facilities, as a number of users suggested. FAO provides access to
forestry databases via its forestry web-site. UNEP has its Global Resource Information Database (GRID)
web-site. Several organizations such as WCMC and IUFRO are also developing worldwide information
services based on Internet applications. These initiatives increase the accessibility of existing
information. However, since they depend on information provided and generated by others, they are not
able to cover all forested areas with the same detail, or to update information with the desired frequency.

4.5 Processing of data and the use of the information

Standard image processing software for PCs is widely available. Development of dedicated program
modules for automated geo-referencing and mosaicking that could be used with this software would
greatly enhance the user-friendliness. Last but not least, the users indicate a need for training and
institution building, mainly in the field of image interpretation and Geographical Information System
(GIS) for forestry applications. It is not clear whether existing courses are not sufficiently available to the
users or not sufficiently suited to their needs.

User Requirements Study: Final Report Page 16

4.6 State-of-the-art of remote sensing for forest management purposes

LANDSAT TM, SPOT XS and aerial photography are currently potentially the most suitable options
available to meet the priority information requirements for land and forest cover, forest types and fire
damage assessment. These optical satellite systems and aerial photography are able to provide
information with the required accuracy of classification.

LANDSAT TM and SPOT XS are the most suitable for larger areas, often referring to national level use.
The considerable differences in the area of different countries does not allow generalizations in this
respect, e.g. “national” for a small country is similar to “provincial or state” for a large country. Aerial
photography is more suitable if detail (scale) is required. NOAA-AVHRR is the best option at the
moment for forest fire assessment.

All systems mentioned above, however, lack the ability to penetrate cloud covers. Although not claimed
as a major problem in the questionnaire survey and country studies, due to a lack of experience with the
use of imagery, this problem is listed in literature and was confirmed at the international workshop.
Satellites equipped with radar sensor, such as ERS-1 and RADARSAT-1 do not have this problem but
both lack the ability to accurately distinguish between essential land cover classes.

From the point of view of affordability, aerial photography is exceptionally expensive if acquired for the
sole purpose of forestry, while optical satellite remote sensing imagery is prohibitively expensive for
many users. Satellite-based radar data and optical data from NOAA-AVHRR appear to be the least
expensive but both lack the ability to meet the established classification parameters.

The evaluation reveals that there is neither now - nor likely to be in the immediate future - a remote
sensing-based information system that can meet all information requirements identified in the study as
essential for forest management.

Furthermore, the evaluation concludes that information needs can only partially be satisfied through
satellite remote sensing. Aerial photography, terrestrial survey, and secondary data sources are equally
important. This will continue to be the case, even when satellite imagery with higher spatial resolution
becomes available.

User Requirements Study: Final Report Page 17

5. CONSTRAINTS IN OBTAINING SPATIAL INFORMATION

5.1 Study findings

The study clearly reveals that the amount of information available, or the information that in theory can
be provided by existing (remote sensing-based) technological infrastructure and options, is not the
overriding problem. Most users do not receive the information they need for sustainable forest
management purposes due to other limiting factors.

The study reveals that major bottlenecks in obtaining spatial information are related to accessibility and
affordability of existing spatial data. This is especially the case at local and sub-national levels. This
observation is absolutely clear from the user needs assessment in which 87% of the respondents
mentioned constraints in the availability of information. This finding was subsequently confirmed
through the literature study, the country studies and finally the international workshop where all
participants emphasized the constraints issue.

Accessibility
In the user needs study, accessibility is referred to as a constraint by 60% of the respondents. More
specifically, 46% of all respondents indicate a lack of communication between organizations, 16 % an
absence of proper data distribution, 10% denial of access to information, 5% unfamiliarity with the
information available and 2% do not know where to find the required spatial information.

The country studies also highlight the unfamiliarity of users with regard to the spatial data products
available, hence causing them to be unable to express the need to apply these products. Other users have
been supplied with remote sensing-based spatial data through incidental arrangements, e.g. research
programmes or international development assistance.

Availability
Although the respondents emphasized the accessibility to remote sensing-based data as a problem,
availability per se may also be a constraint. Operational satellite sensors can only be switched on for
certain periods, for instance due to power constraints. This means that with respect to the actual
availability of remote sensing-based data a detailed investigation still has to be performed.

Affordability
In the user needs assessment, 24% of the respondents indicate the high cost of data and technology to be
a major constraint. As for dissemination, emphasis is placed on problems with the flow of available
data/information. Furthermore the country studies reveal that budget restrictions are the most visible
constraint in the acquisition of remote sensing products.

5.2 Analysis

In the workshop the findings of the study were endorsed and further analyzed. This analysis focused on
identifying the nature of the different constraints (political, institutional, technical and human capacity)
and at what levels (global/supranational, national/sub-national and local) and in which type of
organizations (GO/NGO) the constraints are primarily caused - Table 5.1 summarizes the results of this
analysis.

The analysis underlines that most constraints are non-technical in nature, tending to be more political and
institutional. Furthermore, the analysis reveals that many constraints have their origin in the conditions at
governmental levels.

Political constraints
Political constraints at national levels prevent the formulation of policies and implementation of
sustainable forest management programmes, including organizational structure and capacity building,

User Requirements Study: Final Report Page 18

and the formulation of information strategies. These constraints include lack of political will and
commitment to sustainable forest management, sensitivity to national security, centralized information
control and poor working conditions.

A constraint that was not revealed by the study but was emphasized at the workshop, was the absence of
international access protocols that are needed to enable the open exchange of data between global and
national data users.

Table 5.1 Analysis of main constraints

Constraint Nature of constraint Level Type of

Organization
P I T H GL N L GO NGO
Inadequate formulation of policies * * ** *
Inadequate implementation of policies * ** ** * *
Lack of political will * ** * *
Over-sensitiveness regarding national security * * ** *
Inadequate commitment to sustainable forest management * * ** * * *
Inadequate organizational structure * * ** * * *
Inadequate organizational capacity * * * * ** * *
Inadequate information strategy * * * ** * * *
Inadequate awareness of information systems * * * * ** * *
Over-centralized control of flow of information * * ** * *
Lack of standardization/compatibility * * ** * *
Inadequate human capacity/training * * * ** * *
Poor working conditions * * * * *
Inadequate communication between levels * * * * * * * *
Inadequate methods and systems * * * ** *
Inappropriate technology * * * * * * *
Inadequate user friendliness * * ** * *
Insufficient inter-disciplinarity * * * ** * * *
Shortage of accurate field data * * * * * * *
Usability (inadequate data) * * * * * * *
Unavailability of data * * * * * *
Lack of affordability of data (cost effectiveness) * * * * *
Timeliness (delay in procurement/delivery) * * * * *
(P = political, I = institutional, T = technical, H = human capacity), the level of constraint (GL = global, N = national and sub-
national, L = local) and the type of organization (GO = government, NGO = non-government). An asterisk (*) indicates where
the constraint is primarily caused.

Institutional capacity
Lack of clear structures and procedures within organizations, inadequate capacities and communication
are major institutional constraints at national and local levels. In the user needs assessment, 38% of the
respondents indicate institutional constraints (incl. training) to lie at the root of their problems in data
supply.

The country studies also demonstrate the nature of the constraints: most forest organizations are not
ready to use synoptic spatial data on forest resources. The old working methods still prevail, preventing
any proper integration of spatial information into decision-making. Even when remote sensing-based
products are available, their use is often restricted by the inadequate ability of the organization to use the
data.

Technology constraints
In the user needs survey, 17% of the respondents suggest that the technology is not user-friendly and that
the information is not adapted to the needs of the users. Poor quality of data is mentioned by 15% of the

User Requirements Study: Final Report Page 19

respondents, while 10% mention lack of standardization of data collection and analysis. Constraints in
data acquisition due to cloud cover are mentioned only by 4 % of the respondents.

Another constraint identified is the lack of research and development to investigate proper technologies
for the implementation of an information strategy for sustainable forest management and its integration
into operational systems and procedures.

Human constraints
It is also observed that at all user levels there is inadequate awareness and knowledge of the importance
of sustainable forest management, the multi-functionality of forests and forest information systems.
Furthermore, inadequate human capacities and the lack of training in information handling and
management are considered important constraints to be addressed urgently.

User Requirements Study: Final Report Page 20

6. SYNTHESIS

6.1 Conclusions

With respect to data and information needs, the study concludes that:
- there is a substantial and urgent need for spatial data and information on forests;
- all themes that require spatial information are relevant, irrespective of the level - most important are
the themes of land and forest cover and forest degradation;
- information requirements in all cases refer to both state and change parameters;
- at a local level (incl. forest community, forest management unit or local NGO) and a sub-national
level (incl. provinces and states) nearly all themes have a high priority; and
- at global, supranational and national levels a specific priority for information on bio-diversity and
carbon sequestration is present.

With respect to the capabilities of existing and planned remote sensing systems, the study concludes that:
- LANDSAT TM, SPOT XS and data from aerial photography are currently potentially the most
suitable options for information on forests, although apart from the availability, the resolution of the
LANDSAT data and the price of SPOT data as well as cloud-cover problems for both still exist;
- LANDSAT TM and SPOT XS are most suitable for land and forest cover, forest types and forest fire
damage assessment, in particular for smaller scales;
- Aerial photography is more suitable when more detail (larger scale) is required;
- NOAA-AVHRR is currently the best option for forest fire assessment;
- There is neither now - nor likely to be in the immediate future - a remote sensing-based information
system that can meet all information requirements identified in the study as essential for sustainable
forest management; and
- in any case, the information needs can only partially be satisfied from satellite remote sensing - aerial
photography, terrestrial survey and secondary data sources are equally important - this will continue
to be the case even when higher spatial resolution satellite data become available.

The study has revealed a considerable discrepancy between the demand for data and information and the
capabilities of existing systems, indicating considerable under-utilization of existing data sources, caused
by constraints in the data distribution. With respect to these constraints, the study concludes that:
- accessibility to existing data and information is the major constraint experienced by all users - its
elimination would satisfy the first priority for information on land and forest cover and forest
degradation. This does not mean that other constraints such as usability, availability, frequency,
timeliness and continuity do not have to be resolved, but they will become clear when the
accessibility problem has been solved;
- affordability of optical remote sensing imagery is a severe impediment for most users;
- lack of user-friendly technology, inadequate data quality, cloud cover and lack of standardization in
methods for data collection and analysis are constraints, albeit of relatively lower priority;
- weak organizations and inadequate staffing prevent proper management and operation of spatial
information systems at a national level and below;
- at a national level, there is a lack of information strategy for data dissemination and decentralized
data management and use (i.e. an information infrastructure);
- there is no system available at the moment that accommodates and integrates data of a diverse nature,
such as remote sensing, terrestrial observations, and socio-economic data, both from a variety of
sources and of different qualities; and
- distribution of (remotely sensed) data is the weakest part of the chain: from data acquisition to
delivery of the information to the desk of the user, there are no international protocols to enable the
open exchange of data between users at all levels.

Overall it is observed that:

- the User Requirements Study has set in motion a worldwide process of thinking, exchange of
opinions and discussion on the importance of addressing user needs for spatial forest information.

User Requirements Study: Final Report Page 21

6.2 The FAME concept revisited

At the start of the study, the FAME concept was taken as departure point. This concept is to serve
operational forest monitoring and includes all components to enhance sustainable forest management
worldwide: the development of and end-to-end system, comprising simple PC-based receiving stations,
data processing and archiving functions, optionally integrated with a GIS, the associated education and
training, as well as a satellite with a dedicated sensor, covering the world’s entire surface.

In view of the findings of the study, this concept has been revisited and elaborated resulting in the
following specific characteristics which have to be taken into account for the further development of the
concept and, more specifically the end-to-end information system which is part of the concept:

- In sustainable forest management information is required on a large number of themes that cannot or
cannot entirely be derived from satellite remote sensing, e.g. socio-economic and political
information and NTFP, bio-diversity, degradation, health and stand parameters. This implies that the
system will use a variety of space-borne, airborne, terrestrial and existing secondary sources.

- Different users require different themes of information originating from different sources (usability).
Depending on the user, the timeliness, frequency, affordability and accessibility criteria will differ.

- The accessibility of data is regarded as being essential: both spatial data to the users, as well as
terrestrial data from users to higher levels (aggregation). This encompasses the physical distribution
as well as the policy and institutional framework for decentralized data management.

- Human and institutional capacity building is necessary to enable users to incorporate spatial
information into decision-making processes.

At a national level an information strategy that will provide the policy and institutional framework in
which it is to operate, including research, training and education, must support the end-to-end
information system.

Internationally an end-to-end information system is to be supported by international protocols for the

exchange of data.

The proposed end-to-end information system and the environment in which it is to operate can be
schematically presented as follows:

User Requirements Study: Final Report Page 22

The implementation of an end-to-end information system of this kind has been referred to as an
information infrastructure. A number of major components in the information infrastructure can be
identified, i.e. data generation, capture, transmission, reception and distribution, data processing, data
integration and capacity building:

- Data generation and capture: For several themes in sustainable forest management there is currently
synoptic spatial data available, in particular data on forest cover, forest types and for fire damage
assessment. It still has to be established whether there are currently adequate spatial data available to
meet the requirements of operational forest monitoring systems for all geographic areas of interest.
Although the necessity was not established during the study, a dedicated satellite sensor might
address the gaps in synoptic spatial data supply on forest degradation, forest production and bio-
diversity. However, the study revealed that in order to improve information supply in the short and
medium terms, priority should be given to a better and more widespread use of existing technologies
rather than to the establishment of a new dedicated satellite sensor system. The latter might become
an option in the information infrastructure in the longer term.

- Data transmission, reception and distribution: In order to improve accessibility to synoptic spatial
data, data acquisition (transmission and reception) and distribution mechanisms are essential and
they should therefore be part of the information infrastructure. Another important functionality that
these mechanisms should support is the flow of locally generated data (such as terrestrial
observations) upwards to users at national and international levels. This component only refers to
physical mechanisms for data distribution; policy and institutional aspects are included in the
information strategy.

- Data processing: Many users of spatial information will not have adequate capacity (human,
equipment and software) to handle raw spatial data. Geometric and radiometric correction, geo-
referencing, re-sampling and primary classification are examples of basic operations on spatial data
that require expert knowledge and specific hardware and software. The spatial data will have to be
processed to a degree that suits the purpose of the user. Consequently, the degree to which data must
be prepared is variable, between users and purposes. The processing could be carried out either by
specialized agencies (data brokers) that directly communicate with the users, or it could be
incorporated as automated procedures into the physical systems supplied to the user.

- Data integration: The users make use of a multitude of data from different sources, of which
synoptic spatial data is only one. All of these have a potential function in decision-making and they
should therefore be appropriately integrated with the spatial data where appropriate in order to arrive
at proper conclusions. The integration should be transparent to the user.

- Capacity building: Institutional capacity at both policy and technical levels has to be increased to
integrate the information system into operational procedures for planning, management and
monitoring and to ensure its sustainability within an organizational infrastructure. Staff qualities at
all levels need to be compatible with these requirements, requiring large staff development inputs of
an organizational and technical nature. Creation of awareness and formal education and training
needs have to be identified and corresponding programmes set up. National and international
linkages of institutes engaged in capacity building should be further developed and optimized.

6.3 Recommendations

The User Requirements Study has clearly revealed a substantial and urgent need for improved
information supply in terms of quantity, quality, detail and recentness. It has also made clear that
substantial relevant data and information already exist but that these are not accessible for various
reasons. Efforts should therefore be made to make these data and information available through the
establishment of mechanisms for international data exchange and information strategies. This needs to be
supported by the development of technology to make existing data and information available.

User Requirements Study: Final Report Page 23

Development of technology to meet the information requirements that cannot currently be met by
existing sensors has no priority for the majority of users at this stage. The study has further created an
interactive process and network of persons and organizations at all levels from the world forestry
community which share the same concerns about information supply.

In order to make use of the momentum created by the study, the following recommendations are
proposed for appropriate follow-up action, both nationally and internationally:

1. Put a supranational mechanism or mechanisms in place through an international protocol for the
improved exchange of data and information between users without impeding existing information
supplies.

There are currently no mechanisms for the exchange of (spatial) data between users, within and
between levels. The distribution of synoptic spatial data (e.g. from satellite imagery) and the
aggregation of local and national data into data sets for use at regional and international levels should
be included in the mechanism.

2. National governments should formulate and implement an information strategy for decentralized
data management for sustainable forest management.

Creating awareness plays an important role in improving data supply. Political leaders and the
general public should become more aware about the need for a sustainable use of the forests and the
role that information plays in planning, management, assessment and monitoring. This increased
awareness should result in commitment that can resolve part of the bottlenecks encountered in the
distribution of existing data, by permitting general use of spatial data and by providing sufficient
financial resources to acquire and process data.

Many countries have policies and procedures that prohibit or limit the distribution or use of spatial
data. The information strategy should provide the framework in which this flow of data is possible,
while simultaneously safeguarding other national interests.

3. The developed information strategies should be implemented. This could be done by validating
and further tailoring the revisited FAME concept through pilot projects. These should encompass
the complete flow of information from data generation and capture to the presentation of
information to the user.

The pilot projects serve to develop and validate a physical implementation of an information
infrastructure for a limited number of users (with different profile) in a relatively short period.
Initially these will make use of existing technology and products. Specific user-friendly technology
may have to be developed for the users, providing integration of the different data sources. For
satellite imagery, local receiving stations could be installed and reduced prices for images should be
negotiated. Existing data sets should become more accessible. Capacity building material will have to
be developed.

In the meantime research has to be carried out to further elaborate the possibilities and limitations of
existing and planned systems (availability, usability, frequency etc) and to assess detailed
requirements for technology to be developed. In addition, the refinement of user needs and
prioritization should be continued.

The necessity of developing technology or data products that are not currently available should be
guided by the findings from the pilot projects. This also applies to the actual development of new
technology and/or data products, aiming at covering the identified gaps in information supply. Even
when initiated at present, such development would only give results in the longer term.

User Requirements Study: Final Report Page 24

4. Capacity building modules have to be developed and applied for the different categories of users of
the information systems.

The users of the end-to-end system will require training in the operation of the system. Their
organizations may have to adjust their working procedures and decision-making to incorporate the
information infrastructure. The different management operations (planning, monitoring etc.) require
different kinds of training.

In view of the clear perspective that emerged on the desirability of an operational end-to-end system and
its main characteristics for supporting sustainable forest management at local and national levels, it is of
key importance to maintain the current global interest in the revisited FAME concept and its
implementation. The many (inter) national initiatives in the field of spatial data management and
sustainable forest management and the technological developments can provide additional inputs or
components for the end-to-end system during its further development.

User Requirements Study: Final Report Page 25