Framework for the Development of a National Freshwater Data Strategy: Discussion paper

Glossary

CWA: Canada Water Agency
CWRA: Canadian Water Resources Association
ECCC: Environment and Climate Change Canada
EY: Ernst & Young Global Limited
GC: Government of Canada
NFDI: National Freshwater Data Inventory
NGO: Non-governmental organization
NRCan: Natural Resources Canada
UNDA: United Nations Declaration on the Rights of Indigenous Peoples Act

Executive Summary

Every year, Canadians face important decisions related to freshwater. Such decisions can link to:

The environment, for example, how to protect or restore a waterbody
The economy, for example, where to locate a factory
Health, for example, whether to drink tap water, or
Safety, for example, how to mitigate the risk of floods

To make informed decisions, Canadians require data that is accurate, up-to-date, and readily available. Canada has an abundance of freshwater data, collected and held by many organizations (including the GC, provinces and territories, municipalities, Indigenous Peoples, academic institutions, industry, and non-governmental organizations). But accessing and using this data is challenging due to the lack of awareness of data available, as well as insufficient standardized approaches for collecting, managing, and sharing data.

For example, some Canadians conducting water-related research or involved in water-related decision-making do not have a ‘go-to’ authoritative source for water data. The data that is available is not centrally catalogued nor is it available in a standardized format. Furthermore, large amounts of community-based monitoring data are essentially ‘stranded’ and not openly available. Hence, significant resources are required to simply find and access suitable data. Moreover, greater interoperability is needed to allow datasets to be used and combined to support informed decision-making.

Given these challenges, the Canada Water Agency (CWA) is committed to developing a National Freshwater Data Strategy, in collaboration with partners and stakeholders. The strategy will establish shared principles and approaches for freshwater management to improve the discoverability, accessibility, usability, and interoperability of freshwater data in Canada. These improvements in freshwater data will support decision-makers in assessing and reporting on the state of freshwater in Canada; developing and implementing freshwater management, restoration, and protection strategies and approaches; predicting the impacts of climate change, and in shaping adaptive management decisions.

To begin the process of developing the Strategy, the CWA will undertake discussions with key partners and stakeholders in the data space. This document serves as a framework, or starting point, to guide those discussions. Comments on this framework and on the broader Strategy can be submitted to the CWA Data Office at:

donneessurleau-waterdata@ec.gc.ca

1.0 Background and scope

1.1 Background and data context

In 2019, the Government of Canada committed to establishing a Canada Water Agency to work with provinces, territories, Indigenous communities, local authorities, scientists, and others to find the best ways to keep Canada’s water safe, clean, and well-managed. As an early priority, the new agency was mandated to develop a National Freshwater Data Strategy, in collaboration with partners and stakeholders, to improve the accessibility, use, and sharing of freshwater data in Canada. These improvements in freshwater data will support decision-makers in assessing and reporting on the state of freshwater in Canada; developing and implementing freshwater management, restoration, and protection strategies and approaches; predicting the impacts of climate change, and in shaping adaptive management decisions.

In 2021, Environment and Climate Change Canada (ECCC) began exploring options to develop a National Freshwater Data Strategy. This report provides an overview of the work that has been completed as part of that options analysis. It also provides a framework to begin discussions on developing a future National Freshwater Data Strategy.

1.2 Scope

In general, all Canadian freshwater datasets will be considered in scope. This includes four broad categories of water-related data: water quantity; water quality; water demand and use; and aquatic ecosystems. However, further refinement of the definition of freshwater, the associated datasets, and potential exceptions will be an early priority for a CWA data team and its key partners and stakeholders. These discussions would be part of the initial development of the National Freshwater Data Strategy.

1.3 Roles

It is envisioned that a CWA data team will provide a leadership and coordination role in the freshwater data management space. The team will bring all partner and stakeholders together to collaboratively develop a National Freshwater Data Strategy and associated technical guidance. It will not fulfill an authoritative or regulatory role.

All partners and stakeholders will have a voice at the table as recommendations on various data management topics (e.g. data standards, metadata standards, collection methods, data exchange formats etc.) are discussed and ultimately adopted. This national collaboration could be broadly implemented through forums such as national workshops, working groups, a data council, or community of practice informed by views of Indigenous people. It will also support a transformational approach to First Nation, Métis and Inuit data sovereignty.

1.4 Jurisdictional scan

A variety of existing documents and resources from multiple sources were reviewed to inform the development of this framework. These include data strategies from various GC departments, other international government organizations, and NGOs; as well as best practices for data strategies and data management from subject-matter experts.

Two resources proved particularly important. The first is A Data Strategy Roadmap for the Federal Public Service, a report to the clerk of the Privy Council, which “is intended to position the public service to provide the best possible advice to Ministers and support the more strategic use of data” (Privy Council Office, 2018). Many of the data strategies being developed throughout the GC, as well as this framework, align with the report and its overarching goals.

The second document is the Health Canada Data Strategy (Health Canada, 2019). This is a comprehensive data strategy developed by the GC and available online. It is anticipated that a National Freshwater Data Strategy would be collaboratively developed, published, and distributed in a similar fashion.

Since this Framework was first drafted, the Government of Canada has taken further steps to manage data as valued assets. The Government published Canada’s Digital Ambition 2022, which called for the public service “to enable the delivery of government in the digital age for all Canadians”, as well as the Data Strategy for the Federal Public Service 2023-2026, which identified four mission areas: improving data by design, developing data for decisions, delivering data-driven services, and empowering the public service. This growing focus on data in the public service has led to defined data governance structures and clarified roles and responsibilities for managing valuable data assets, including freshwater data.

1.5 Discussion questions

Does the proposed scope of the National Freshwater Data Strategy meet the needs for freshwater data in Canada? If not, what changes would you suggest?

Is the role of the Canada Water Agency in freshwater data appropriate and well articulated? If not, what needs to be adjusted or clarified?

Is the role of freshwater data partners properly identified and clearly described? If not, what needs to be adjusted or clarified?

Does the Canada Water Agency have a role in supporting First Nation, Métis and Inuit data sovereignty?

2.0 Freshwater data partners and stakeholders across Canada

2.1 National Freshwater Data Engagement Workshop: Towards a Canada Water Agency

ECCC personnel engaged with partners, stakeholders, and the public in late 2020 and early 2021. This engagement included a virtual National Freshwater Data Engagement Workshop, held on March 8 and 12, 2021, which focused on freshwater data challenges and the possible role of the CWA. Over 110 people attended the workshop with representatives from all 10 provinces and 3 territories, 12 Indigenous groups, 24 NGOs, 10 universities, and 4 other federal government departments. Some of the key findings are provided below.

Importance of Freshwater Data

According to the workshop summary report, “Freshwater data and information were identified as being ‘paramount to supporting evidence-based decision-making’ and therefore, a crucial element in the establishment of a CWA.” (Environment and Climate Change Canada, 2021, p. 4).

State of Freshwater Data

Regarding the status and accessibility of water data in Canada, the workshop highlighted the wealth of data that exists inside and outside the federal government, including from Indigenous groups, provinces and territories, municipalities, community-based monitoring, and academia. However, this water data ecosystem is complex and accessing and using data is challenging. There is no standardized approach to collecting, managing, and sharing water data.

Role for the CWA

It was agreed that the CWA should facilitate national collaboration on freshwater data through improved communication, coordination, and connecting to promote trust and sharing. This includes coordinating the development of a national strategy (to establish data standards and improve data accessibility/ interoperability) as well as associated tools.

Furthermore, the CWA should support the aspirations of First Nations, Inuit and Métis Peoples to control their own freshwater data decisions. The CWA should also work towards increased support for community-based monitoring by sharing lessons learned, new technologies, and coordinated training.

2.2 Data context: Freshwater data across Canada

In 2021, ECCC personnel developed an inventory of freshwater datasets, referred to as the National Freshwater Data Inventory (NFDI), to better understand what freshwater data exists and how much is readily discoverable and accessible. The NFDI is a collection of over 2200 freshwater data resources. The bulk of the resources are federal, but over 400 records point to provincial resources. It is estimated that the current NFDI represents only a small fraction of the total freshwater data resources in Canada and should be viewed as a starting point for future work.

The main lessons learned from the creation of the NFDI are that:

The process of merging variously formatted records from different organizations is highly labour intensive and time consuming.
There is a need for increased use of data and metadata standards.
Harmonizing and standardizing records of data resources requires an overarching metadata standard that unifies disparate topics and areas of study.
As identified in the National Freshwater Data Engagement Workshop, there is an opportunity for the CWA to play a key role in providing an overarching metadata standard to help make freshwater data more accessible.

These findings were echoed in a recent report by CanmetMINING at Natural Resources Canada (NRCan) (Miller et al., 2022). CanmetMINING created an inventory compiling datasets from 14 different federal and provincial governments, water boards, conservation authorities, and private companies across the country. The project has standardized and aggregated more than 800,000 water quality records from more than 16,000 unique sampling sites spanning 80 years. The report describes the number of challenges CanmetMINING faced in compiling a nation-wide database for research applications and recommends the adoption of standards for water quality reporting. The report specifically mentions the CWA and how it can play a lead role in addressing some of the issues faced by the project in terms of data standardization.

2.3 Indigenous peoples and freshwater data

The GC wishes to develop a comprehensive understanding of the various freshwater data interests of First Nations, Inuit, and Métis peoples to better inform CWA work. It is important to advance this conversation to strengthen relations; honour agreements; and respect Indigenous rights, interests, knowledge systems, and cultures.

During the National Freshwater Data Engagement Workshop (ECCC 2021), First Nations, Inuit, and Métis governments, organizations, and communities underscored the need for data sharing protocols that protect Indigenous Knowledge Systems, while allowing for the meaningful application of Indigenous knowledges in cooperation with Indigenous peoples. The CWA is committed to implementing the United Nations Declaration on the Rights of Indigenous Peoples Act (UNDA) in addition to furthering reconciliation with Indigenous partners. These broader commitments provide a framework for CWA representatives to understand their obligations in relation to the principles and protocols for Indigenous data (e.g. OCAP®) as communicated by Indigenous partners, peoples, and communities.

One of the aims of the National Freshwater Data Strategy is to foster and facilitate constructive dialogue between the federal government and Indigenous peoples on freshwater issues, including data management. A National Freshwater Data Strategy will support a meaningful role for Indigenous peoples in the organization, protection, accessibility, and appropriate application of the data.

2.4 Stakeholder feedback

In December 2020, ECCC released a public discussion paper entitled Toward the Creation of a Canada Water Agency. ECCC invited Canadians to provide their thoughts and ideas via participation in national and regional forums, an online survey, or written submissions.

As part of these consultations, 51 stakeholder organizations jointly submitted a response in 2021 entitled Five Foundational Pillars for the Canada Water Agency, capturing their collective opinion on issues that could be addressed by the CWA. The first four pillars directly reference freshwater data and elaborate a role for the CWA on these issues (Aarup et al., 2021). These pillars broadly align with the outcomes of the National Freshwater Data Engagement Workshop that determined, in part, that the CWA should facilitate national collaboration, implement data standards, and support a meaningful role for Indigenous peoples in the organization, protection, accessibility and appropriate application of the data.

Similarly, the Canadian Water Resources Association (CWRA) produced a detailed response to the CWA discussion paper (Canadian Water Resources Association, 2021). This response provides a valuable perspective of the agency from subject-matter experts. The CWRA response was broadly supportive of the overall aims of the CWA (i.e. a national, collaborative approach to water management) and offered ideas to help support the goals and scope of the CWA. The response also expressed support for a central CWA role in ensuring the availability of water data and information to support decision-making. Finally, the response suggested that the CWA should take a collaborative approach and build relationships with existing organizations and Indigenous Peoples. This feedback aligns with other feedback received by ECCC regarding the CWA data component.

2.5 Discussion questions

In what ways do you see your organization, community, nation or government contributing to the future of freshwater data in Canada?

How can the CWA best work with First Nations, Inuit, and Métis people, communities, representative organizations, and partners to honour their diversity, identify their needs, and uphold data sovereignty?

3.0 Why does Canada need a data strategy?

Access to high quality freshwater data is critical to effective decision-making on a range of issues in Canada. These issues can relate to water management, including freshwater protection, restoration, and adaptation to climate change. But they can also relate to economic development (e.g. where to locate a factory or community), health (e.g. where to swim or drink water), safety (e.g. how to mitigate the risk of flood) etc.

Currently, there is a myriad of freshwater data in Canada, collected and held by GC, provinces and territories, municipalities, Indigenous peoples, academic institutions, industry, and NGOs. However, data users and providers have highlighted challenges in several key areas:

Discoverability:

There is a general lack of awareness of available data In Canada.
Some Canadians conducting water-related research or involved in water-related decision-making do not have a “go-to” authoritative source for water data.
Furthermore, the data that is available is not centrally catalogued.

Accessibility:

Freshwater data in Canada is not available in a standardized format.
Large amounts of community-based monitoring data are essentially ‘stranded' and not openly available.
Hence, significant resources are required to simply find and access suitable data.

Usability:

The absence of standards, consistent methodologies, and defined operating procedures and protocols have reduced the reliability of freshwater data.
Moreover, improper data management can hinder the use of data and innovative analytical tools to support decision-making and collaboration.

Interoperability:

The lack of standard data approaches has also limited Canadians’ ability to share and combine datasets to gain a more complete understanding of water in Canada.
Existing data sharing protocols don’t always protect Indigenous knowledge and data sovereignty.

The proposed data strategy aims to address these and other challenges by providing a comprehensive approach to data collection, sharing, and management based on common principles.

3.1 Discussion questions

Have we identified the right challenges? Are there others?

What are your organization’s greatest needs in regard to freshwater data?

How can the Canada Water Agency address your organization’s data needs?

4.0 A path towards a National Freshwater Data Strategy

4.1 Vision

Key partners and stakeholders, including the provinces and territories, Indigenous communities, local authorities, academia, industry, and others, will contribute to developing a comprehensive National Freshwater Data Strategy. The Strategy will lay the foundation for significant improvements in the discoverability, accessibility, and usability of freshwater data in Canada. This, in turn, will ensure that Canadians have the data they need to inform their activities and decisions.

To achieve this, it is proposed that a National Freshwater Data Strategy be based on several core pillars, as outlined in Figure 1 and described in the following sections.

Figure 1 – Graphical representation of the proposed pillars of a national freshwater data strategy.

Long description

Vision

Working together to enable Canadians access to data for safe, clean and well-managed freshwater

Core pillars

Quality data
Findable and accessible data
Data stewardship
Capacity building and mobilization

Foundational principles

Trust and respect
Communication and collaboration

4.2 Foundational principles

The core pillars of a National Freshwater Data Strategy should be built upon foundational principles, namely: communication and collaboration, and trust and respect.

4.3 Core pillars

4.3.1 Quality data: Collaborative development of data standards and practices

One of the goals of the data strategy is to ensure that freshwater data is fit for its intended use. As different applications of freshwater data require different levels of accuracy, precision, and timescales, it is important that data be of a known quality. This will require the establishment of a set of common standards for freshwater data.

4.3.2 Findable and accessible data

Making data more findable and accessible is vital. Through strategic investments in existing data systems, such as data hubs and data catalogues, the CWA data team will lead efforts to improve access to existing and potentially future freshwater datasets. This will help build linkages between systems so that users of data can more easily find and access freshwater data.

4.3.3 Data stewardship

In Canada, most freshwater data is held by federal departments, provinces and territories, Indigenous Peoples, industry, academia and non-governmental organizations. The CWA data team will work with partners and stakeholders to ensure that freshwater data is managed and maintained with accountability and responsibility. To support this work, the National Freshwater Data Strategy could include a stewardship framework for freshwater data in Canada.

4.3.4 Capacity building and mobilization

As discussed in sections 1.3 and 2.0, it is envisioned that a CWA data team would provide leadership and facilitate effective collaboration and coordination in the freshwater data space.

In the future, subject to further funding, the CWA could work with partners and stakeholders to implement the National Freshwater Data Strategy. It could support initiatives aimed at filling capacity gaps (related to the consolidation, standardization, storage, maintenance, and dissemination of data). In this way, it could help ensure that freshwater data is managed in accordance with the strategy’s protocols/standards.

4.4 Discussion questions

In your view, which pillar would most positively impact freshwater data in Canada?

What important content should be included in a National Freshwater Data Strategy to support its successful implementation? (Refer to Annex A.)

What are some examples of how a National Freshwater Data Strategy could support informed decision-making or provide opportunities for innovation in the freshwater domain?

5.0 Implementation

5.1 Roadmap

Initially, the CWA will focus on developing the National Freshwater Data Strategy in consultation with partners and stakeholders, including the provinces and territories, Indigenous communities, local authorities, academia, industry, and others. Once the National Freshwater Data Strategy has been published, subject to further funding, the CWA can shift its focus to implementing the strategy.

To support implementation, the CWA and partners will develop specific technical guidance documents. Topics could include, but are not necessarily limited to: data archiving, data exchange, data collection standards, and metadata standards. Progress will be monitored via an established governance structure, to be developed collaboratively with key partners and stakeholders.

5.2 Discussion questions

How will the National Freshwater Data Strategy interact with your organization’s current policies and strategies regarding freshwater data management?

What factors impairing freshwater data access, use, and interoperability are not addressed in this framework?

The CWA will strive to coordinate and support dissemination of best practices in freshwater data management. Are there standards, principles or tools that the Strategy should recognize and advance?

References

Canadian Water Resources Association. (2021). National Executive Response to the ECCC Canada Water Agency Discussion Paper. Environment and Climate Change Canada. (2021). National Freshwater Data Engagement Workshop: Towards a Canada Water Agency. Report prepared for Environment and Climate Change Canada.

Environment and Climate Change Canada. (2020). Toward the Creation of a Canada Water Agency Discussion Paper (Publication No. En4-462/2020E-PDF).

Health Canada. (2019). Health Canada data strategy (Publication No. H14-336/2019E-PDF).

Privy Council Office. (2018). Report to the Clerk of the Privy Council: a data strategy roadmap for the federal public service (Publication No. CP22-170/2018E-PDF).

Miller, C., Cleaver, A., Huntsman, P., Asemaninejad, A., Rutledge, K., Bouwhuis, R., & Rickwood, C. (2022). Predicting water quality in Canada: mind the (data) gap. Canadian Water Resources Journal / Recue canadienne des ressources hydriques, 47(4), 169-175. doi:10.1080/07011784.2021.2004931

Aarup, K., Baines, P., Brandes, O., Brennan, J., Campbell, S., Chaplin, M., … Woodhouse, M. (2021). Five Foundational Pillars for the CWA. Flow Canada.

Annex A - Proposed contents of a National Freshwater Data Strategy

Executive Summary
National Freshwater Data Strategy Context
- Background and Data Context
- Scope
- Roles
Freshwater Data Partners and Stakeholders Across Canada
- National Freshwater Data Engagement Workshop: Towards a Canada Water Agency
- Data Context: Freshwater Data Across Canada
- Stakeholder Feedback
- Indigenous Peoples and Freshwater Data
Why Does Canada Need a National Freshwater Data Strategy?
A Path Towards a National Freshwater Data Strategy
- Vision
- Foundational Principles
- Core Pillars
  - Quality Data: Collaborative Development of Data Standards and Practices
  - Making Data Findable and Accessible
  - Data Stewardship
  - Capacity Building and Mobilization
Implementation
- Roadmap/Timelines
- Data Archiving
- Data Exchange
- Data Standards
- Data Quality

Annex B - Discussion questions

Section 1: Background and scope