NATIONAL PLAN FOR CIVIL EARTH OBSERVATIONS - National Science and Technology Council Executive Office of the President - July 2014
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NATIONAL PLAN FOR
CIVIL EARTH OBSERVATIONS
PRODUCT OF THE
National Science and Technology Council
Executive Office of the President
July 2014EXECUTIVE OFFICE OF THE PRESIDENT
NATIONAL SCIENCE AND TECHNOLOGY COUNCIL
WASHINGTON, D.C. 20502
July 18, 2014
Dear Members of Congress:
The United States Government collects and distributes a wide range of environmental and Earth-system
data. These data, collected and maintained through billions of dollars of investments in civil Earth
observation systems, provide decision makers with information vital to improving our lives and well-
being, protecting property, promoting national security and economic growth, and advancing scientific
inquiry. The observations that provide these data are critical to our understanding of all Earth-system
phenomena, including weather and climate, natural hazards, land-use change, ecosystem health, and
natural-resource availability.
Legislation instructs the Director of the Office of Science and Technology Policy (OSTP) to establish a
mechanism to ensure greater coordination of civilian Earth observations, including the development of
a strategic implementation plan that is updated at least every three years. In April 2013, the National
Earth Observations Task Force completed the National Strategy for Civil Earth Observations, which
established a policy framework for routine assessment of Earth observations and guidelines to facilitate
enhanced data management and information delivery to users. It also called for the development of a
National Plan for Civil Earth Observations.
This first-ever National Plan is a key outcome of interagency coordination in support of the National
Strategy. Based in large part on the results of a government-wide assessment of the Nation’s Earth
observations portfolio, the Plan establishes priorities and supporting actions for advancing our civil
Earth observations capabilities. Its publication marks an important step in our ability to understand,
prioritize, and coordinate Federal Earth observations and to better inform our investments in civil Earth-
observation systems.
The Plan was developed by OSTP through an interagency effort led by the U.S. Group on Earth
Observations, a subcommittee of the National Science and Technology Council’s Committee on
Environment, Natural Resources, and Sustainability. It will be revised every three years in conjunction
with the regular Earth observations assessment process.
I and my office look forward to working with the Congress to support the Plan’s implementation and to
advance our civil Earth-observation capabilities for the benefit of society.
Sincerely,
John P. Holdren
Assistant to the President for Science and Technology
Director, Office of Science and Technology PolicyAbout the National Science and Technology Council The National Science and Technology Council (NSTC) is the principal means by which the Executive Branch coordinates science and technology policy across the diverse entities that make up the Federal research and development enterprise. A primary objective of the NSTC is establishing clear national goals for Federal science and technology investments. The NSTC prepares research and development strategies that are coordinated across Federal agencies to form investment packages aimed at accomplishing multiple national goals. The work of the NSTC is organized under five committees: Environment, Natural Resources, and Sustainability; Homeland and National Security; Science, Technology, Engineering, and Math (STEM) Education; Science; and Technology. Each of these committees oversees subcommittees and working groups focused on different aspects of science and technology. More information is available at http://www.whitehouse.gov/ostp/nstc. About the Office of Science and Technology Policy The Office of Science and Technology Policy (OSTP) was established by the National Science and Technology Policy, Organization, and Priorities Act of 1976. OSTP’s responsibilities include: advising the President in policy formulation and budget development on questions in which science and technology are important elements; articulating the President’s science and technology policy and programs; and fostering strong partnerships among Federal, state, and local governments, and the scientific communities in industry and academia. The Director of OSTP also serves as Assistant to the President for Science and Technology and manages the NSTC. More information is available at http://www.whitehouse.gov/ostp. About the United States Group on Earth Observations The United States Group on Earth Observations (USGEO) is chartered as a subcommittee of the NSTC Committee on Environment, Natural Resources, and Sustainability (CENRS). The Subcommittee’s purpose is threefold: to coordinate, plan, and assess Federal Earth observation activities in cooperation with domestic stakeholders; to foster improved Earth system data management and interoperability throughout the Federal Government; and to engage international stakeholders by formulating the U.S. position for, and coordinating U.S. participation in the intergovernmental Group on Earth Observations. More information is available at http://www.usgeo.gov. Copyright Information This document is a work of the United States Government and is in the public domain (see 17 U.S.C. §105). Subject to the stipulations below, it may be distributed and copied with acknowledgment to OSTP. Copyrights to graphics included in this document are reserved by the original copyright holders or their assignees and are used here under the government’s license and by permission. Requests to use any images must be made to the provider identified in the image credits or to OSTP if no provider is identified. Printed in the United States of America, 2014. About this Document This Plan was developed by OSTP with the support of a writing team led by USGEO Subcommittee Chair, Peter Colohan, and Director of the USGEO Program, Timothy Stryker. It was reviewed by the USGEO Subcommittee and CENRS and was finalized and published by OSTP.
OSTP and the USGEO Subcommittee and Program wish to acknowledge the significant analytical contributions of staff from the Institute for Defense Analyses (IDA) Science and Technology Policy Institute throughout the development of the Plan, including Jason Gallo, Brian Sergi, Eoin McCarron, and Elaine Sedenberg.
National Science and Technology Council
Chair
John P. Holdren
Assistant to the President for Science and Technology
Director, Office of Science and Technology Policy
NSTC Staff Executive Director
Jayne Morrow
Office of Science and Technology Policy
Committee on the Environment, Natural Resources,
and Sustainability
Co-Chairs
Tamara Dickinson
Principal Assistant Director for Environment & Energy
Office of Science and Technology Policy
Glenn Paulson*
Assistant Administrator for Research and Development and Science Advisor
Environmental Protection Agency[A1]
Kathryn Sullivan
Under Secretary for Oceans and Atmosphere
Administrator of the National Oceanic and Atmospheric Administration
Department of Commerce
United States Group on Earth Observations
Chair
Peter Colohan
Office of Science and Technology Policy
Vice-Chairs
John Crowe
U.S. Geological Survey
Department of the Interior
Lawrence Friedl
National Aeronautics and Space Administration
Zdenka Willis
National Oceanic and Atmospheric Administration
Department of CommerceMembers
Grant Aufderhaar
Department of Defense
Linnea Avallone
National Science Foundation
John Balbus
National Institute of Environmental Health Science
Department of Health and Human Services
Michael Bonadonna
Office of the Federal Coordinator for Meteorology
National Oceanic and Atmospheric Administration
Department of Commerce
Steven Cary
United States Army Corps of Engineers
Department of Defense
Bruce Davis
Department of Homeland Security
Ivan DeLoatch
Federal Geographic Data Committee
U.S. Geological Survey
Department of the Interior
Dan Edwards
United States Air Force
Department of Defense
Wayne Estabrooks
United States Navy
Department of Defense
Gary Foley
Environmental Protection Agency
Gary Geernaert
Department of Energy
Len Hirsch
Smithsonian Institution
Camille Mittelholtz
Department of Transportation
Daniel Reifsnyder
Department of State
Carrie Stokes
United States Agency for International DevelopmentCharles Walthall
Department of Agriculture
Sandra Webster
National Geospatial-Intelligence Agency
White House Liaisons
Tamara Dickinson
Office of Science and Technology Policy
Peter Colohan
Office of Science and Technology Policy
Grace Hu
Office of Management and Budget
U.S. Group on Earth Observations Program
Timothy Stryker
USGEO Program Director
Office of Science and Technology Policy
Wade Price
Executive Secretary
Smithsonian Institution
*Stepped down in 2014 [A2]Table of Contents
Executive Summary....................................................................................................................................... 1
1. Introduction ............................................................................................................................................ 4
2. Definitions and Context .......................................................................................................................... 7
2.1. Definition of Earth Observations and Earth Observing Systems .................................................... 7
2.2. Societal Benefit Areas (SBAs) ......................................................................................................... 7
2.3. Earth Observation Assessment (EOA) ............................................................................................ 8
2.4. Data Management Framework, Big Earth Data Initiative, and Climate Data Initiative ................ 9
2.5. Relationship between the National Plan and Existing Studies ....................................................... 9
2.6 External Input and the Request for Information.......................................................................... 10
3. Categories for Civil Earth Observations ................................................................................................ 11
3.1. Overview of Categories ................................................................................................................ 11
3.2. Sustained Observations................................................................................................................ 12
3.2.1. Sustained Observations for Public Services ...................................................................... 12
3.2.2. Sustained Observations for Earth System Research in the Public Interest ...................... 14
3.3. Experimental Observations .......................................................................................................... 15
4. Priorities and Supporting Actions for Civil Earth Observations ............................................................ 17
4.1. Priorities ....................................................................................................................................... 17
4.1.1. Priority 1: Continuity of Sustained Observations for Public Services ............................... 17
4.1.2. Priority 2: Continuity of Sustained Observations for Earth System Research .................. 18
4.1.3. Priority 3: Continued Investment in Experimental Observations ..................................... 19
4.1.4. Priority 4: Planned Improvements to Sustained Observation Networks and Surveys for
All Observation Categories ............................................................................................... 19
4.1.5. Priority 5: Continuity of, and Improvements to, a Rigorous Assessment and Prioritization
Process .............................................................................................................................. 19
4.2. Supporting Actions ....................................................................................................................... 20
4.2.1. Action 1: Coordinate and Integrate Observations ............................................................ 20
4.2.2. Action 2: Improve Data Access, Management, and Interoperability ............................... 21
4.2.3. Action 3: Increase Efficiency and Cost Savings ................................................................. 23
4.2.4. Action 4: Improve Observation Density and Sampling ..................................................... 24
4.2.5. Action 5: Maintain and Support Infrastructure ................................................................ 25
4.2.6. Action 6: Explore Commercial Solutions ........................................................................... 26
4.2.7. Action 7: Maintain and Strengthen International Collaboration ...................................... 26
14.2.8. Action 8: Engage in Stakeholder-Driven Data Innovation ................................................ 27
5. Civil Earth Observations from Airborne, Terrestrial, and Marine Platforms ....................................... 29
5.1. Sustained Airborne, Terrestrial, and Marine Observations for Public Services and Research ... 30
5.1.1. Airborne Observations for Public Services and Research ................................................. 30
5.1.2. Terrestrial (Including Freshwater) Observations for Public Services and Research ......... 30
5.1.3. Marine Observations for Public Services and Research ................................................... 31
5.1.4. Multi-platform Observations for Public Services and Research ....................................... 32
5.2. Experimental Airborne, Terrestrial, and Marine Observations.................................................... 32
6. Agency Roles and Responsibilities for Civil Earth Observations from Space ...................................... 33
6.1. Sustained Satellite Observations for Public Services ................................................................... 33
6.1.1. Air Quality and Ozone ....................................................................................................... 33
6.1.2. Land Imaging ..................................................................................................................... 34
6.1.3. Ocean Color Observations ................................................................................................ 34
6.1.4. Ocean Surface and Water-Level Monitoring .................................................................... 34
6.1.5. Ocean Surface Vector Winds ............................................................................................ 35
6.1.6. Space Weather Monitoring............................................................................................... 35
6.1.7. Weather, Hazards, and Seasonal/Inter-annual Climate Variability .................................. 35
6.2. Sustained Satellite Observations for Earth System Research ...................................................... 36
6.2.1. Aerosols and Trace Gases ................................................................................................. 36
6.2.2. Atmospheric Carbon Dioxide ............................................................................................ 36
6.2.3. Groundwater..................................................................................................................... 36
6.2.4. Net Energy Balance ........................................................................................................... 37
6.3. Experimental Satellite Observations ............................................................................................. 37
7. Summary Guidelines in Implementation and Coordination of the National Plan ............................... 39
Annex I: 2012 EOA Results .......................................................................................................................... 40
Annex II: Caveats for Understanding and Interpreting the 2012 Earth Observation Assessment ............ 59
Annex III: Abbreviations .............................................................................................................................. 61
2Executive Summary
The U.S. Government is the largest provider of environmental and Earth-system data in the world. These
data are derived from observations of the Earth, which are used by Federal agencies and their partners to
carry out their missions. These data form the foundation of services that protect human life, property, the
economy, and national security, and they support research to foster scientific advances. Provided through
public funding, they are made open to the greatest extent possible to advance human knowledge, to
enable private industry to provide value-added services, and for general public use.
As the Nation’s Earth-observation capacity and related data holdings have grown, so has the complexity
of the challenge of managing Earth observation systems effectively and taking full advantage of the data
they collect. While Earth observations and data are often collected to support the delivery of well-defined
products and public services or meet specific research needs, improved coordination and access would
ensure that the data are used more broadly. By expanding the use of observations and data beyond the
purposes for which they are originally collected, the United States can maximize the impact of the
resources invested in Earth-observation systems.
In October 2010, Congress charged the Director of the Office of Science and Technology Policy (OSTP) with
establishing a mechanism for addressing this challenge through the production and routine update of a
strategic plan for Earth observations. In response, OSTP convened a National Earth Observations Task
Force (NEOTF) in February 2011, which produced the National Strategy for Civil Earth Observations in April
2013. The NEOTF also conducted the first assessment of the Federal Earth observations enterprise. The
resulting Earth-Observation Assessment (EOA) considered the impact of observing systems on distinct
societal benefit areas.
This document, the National Plan for Civil Earth Observations (hereafter referred to as the National Plan),
incorporates the priorities identified in the EOA to provide strategic guidance for a balanced portfolio
approach to managing civil Earth observations to fulfill agency mandates and achieve national objectives.
As required by law, this National Plan will be updated every three years to provide greater coordination
of Federal civil Earth-observation systems.
The National Plan defines a new framework for constructing a balanced portfolio of Earth observations
and observing systems. This framework classifies Earth-observation activities according to two broad
categories, “sustained” and “experimental” based on the duration of the anticipated Federal
commitment:
Sustained observations are defined as measurements taken routinely that Federal agencies are
committed to monitoring on an ongoing basis, generally for seven years or more. These
measurements can be for public services or for Earth-system research in the public interest.
Experimental observations are defined as measurements taken for a limited observing period,
generally seven years or less, that Federal agencies are committed to monitoring for research and
development purposes. These measurements serve to advance human knowledge, explore
technical innovation, and improve services, and in many cases may be first-of-their-kind Earth
observations.
1Within the subcategory of sustained observations for public services, the National Plan defines two tiers
of measurement groups. Tier 1 measurement groups are those derived from systems identified in the EOA
as having high impact on a majority of the societal benefit areas; Tier 2 measurement groups include those
derived from the remaining high-impact systems. While the EOA provided higher overall scores to Tier 1
systems, many Tier 2 systems contribute critically, or are essential, to key objectives in one or more
societal benefit areas. Some Tier 2 systems are the only observing systems available for accomplishing a
particular objective.
These new categories advance the Nation’s approach to Earth observations by describing a new
framework based on the duration of Federal commitment to the period of observation, which is an
essential step for prioritizing the Nation’s Earth observations portfolio. This framework is also a step
toward addressing a key policy challenge in Earth observations: determining when experimental
observations should be transitioned to sustained observations for research or for delivery of public
services.
Based on this framework and the results of the EOA, the National Plan establishes the following rank-
ordered priorities:
1. Continuity of sustained observations for public services
2. Continuity of sustained observations for Earth-system research
3. Continued investment in experimental observations
4. Planned improvements to sustained observation networks and surveys for all observation
categories
5. Continuity of, and improvements to, a rigorous assessment and prioritization process
The overall set of observations resulting from these priorities should yield a balanced Earth-observations
portfolio.
While the National Plan provides guidance in setting priorities for the construction of the portfolio,
agencies have discretion, in consultation with the Executive Office of the President and Congress, to
deviate from the National Plan’s rankings of priorities when necessary for managing specific systems in
the categories and tiers outlined in this document. The National Plan provides this flexibility while still
meeting the Nation’s overall civil Earth-observation priorities and objectives.
The National Plan also identifies the following rank-ordered supporting actions that will maximize the
benefits derived from the Nation’s Earth observations:
1. Coordinate and integrate observations
2. Improve data access, management, and interoperability
3. Increase efficiency and cost savings
4. Improve observation density and sampling
5. Maintain and support infrastructure
26. Explore commercial solutions
7. Maintain and strengthen international collaboration
8. Engage in stakeholder-driven innovation
The National Plan also describes specific agency roles and responsibilities for sustaining observation
systems and platforms.
Implementation and coordination of the activities outlined in the National Plan will be conducted through
the budget and program-planning activities of the relevant Federal agencies and through interagency
processes. Federal agencies will determine implementation schedules, progress reviews, and funding
profiles in consultation with the Executive Office of the President.
The primary forum for interagency discussion and coordination of Earth observation, related data
management, and related international issues is the United States Group on Earth Observations (USGEO)
Subcommittee of the National Science and Technology Council (NSTC) Committee on Environment,
Natural Resources, and Sustainability (CENRS). OSTP, in consultation with the USGEO Subcommittee, the
NSTC CENRS, and their member agencies, will review and update this National Plan on a three-year cycle.
As part of the update process, OSTP will solicit and consider the input of external stakeholders and the
general public. For this first National Plan, OSTP sought input from external stakeholders through a
publicly released Request for Information.
31. Introduction
The U.S. Government the largest provider of environmental and Earth system data in the world. These
data are derived from Earth observations1 collected by numerous Federal agencies and partners to carry
out their missions in support of life, property, and economic and national security, and they are the
foundation for scientific advances. In accordance with the National Strategy for Civil Earth Observations
and Executive Order No. 13642, these publicly funded data are made open2 to the greatest extent possible
to advance human knowledge, to enable private industry to provide value-added services, and for general
public use.3
Conservative estimates indicate that Federal Earth-observation activities add $30 billion to the U.S.
economy each year.4 These investments ensure that decision makers, businesses, first responders,
farmers, and an array of other stakeholders have the information they need about natural resources,
climate and weather, natural hazards, land-use change, ecosystem health, water, and other
characteristics of the planet. Taken together, Earth observations provide the indispensable foundation for
meeting the Federal Government’s long-term sustainability objectives and advancing U.S. social,
environmental, and economic well-being.
As the Nation’s Earth-observation capacity has grown, however, so has the complexity and challenge of
its most effective use for public benefit. Today, civil Earth observations are funded in the budgets of 11
departments and agencies of the Federal Government, including more than an estimated $2.5 billion in
satellite systems and more than $1 billion for airborne, terrestrial (including freshwater), and marine
networks and surveys (e.g., buoys, stream gages, and fishery surveys). U.S. Earth observation efforts are
1 The term “Earth observations” refers to data and products derived from Earth-observing systems and surveys. The term
“observing systems” refers to one or more sensing elements that directly or indirectly collect observations of the Earth,
measure environmental parameters, or survey biological or other Earth resources (land surface, biosphere, solid Earth,
atmosphere, and oceans). A more detailed definition is provided in Section 2: Definitions and Context.
2 National Earth Observations Task Force, National Strategy for Civil Earth Observations, Washington, DC: Office of Science and
Technology Policy, April 2013, p. 24,
http://www.whitehouse.gov/sites/default/files/microsites/ostp/nstc_2013_earthobsstrategy.pdf; Executive Order No. 13642
“Making Open and Machine Readable the New Default for Government Information,” May 9, 2013,
http://www.whitehouse.gov/the-press-office/2013/05/09/executive-order-making-open-and-machine-readable-new-default-
government-.
3 Defense and national-security requirements and considerations are not covered by this National Plan, though the use of
defense and national-security assets for civil purposes is included. The Department of Defense is responsible for developing
solutions for defense Earth observation requirements to support military operations and makes data available for civil agency
use as appropriate. Coordination and oversight of civil agency use of national-security classified collections is performed by
the interagency Civil Applications Committee. See the National Earth Observations Task Force, National Strategy for Civil
Earth Observations, Washington, DC: Office of Science and Technology Policy, April 2013, p. 13.
4 Earth Observations and Global Change, Center for Strategic and International Studies (CSIS), 2008, p. 10.
http://csis.org/files/media/csis/pubs/080725_wigbels_earthobservation_web.pdf.
4distributed among more than 100 programs under the purview of Federal agencies and non-Federal
entities that produce and use these data.5
While Earth-system data collected through these observations are currently used to meet critical needs
of distinct organizations and stakeholders, improved coordination will ensure that information derived
from Earth observations will be used more broadly for both traditional and innovative purposes.
In October 2010, Congress charged the Director of the Office of Science and Technology Policy (OSTP) with
establishing a mechanism for addressing this challenge.6 OSTP convened a National Earth Observations
Task Force (NEOTF) in February 2011 under the National Science and Technology Council (NSTC)
Committee on Environment, Natural Resources, and Sustainability (CENRS) to inform the OSTP response
to Congress. The NEOTF took three actions:
1. The development of a National Strategy for Civil Earth Observations (hereafter referred to as the
National Strategy) to provide an enduring framework for routine assessment and planning for the
Nation’s Earth observation infrastructure. The National Strategy was released in April 2013.7
2. The development of a data-management framework, including principles and guidelines to
improve discovery, access, and use of Earth observations. This framework is contained within the
National Strategy.
3. The first assessment of the Federal Earth-observation enterprise, reviewing the impact of 362
observing systems on 13 societal themes. Summary results of the 2012 Earth Observation
Assessment (EOA) are presented in this National Plan for Civil Earth Observations (hereafter
referred to as the National Plan).
These three actions provided OSTP and CENRS with the foundation for this National Plan, which includes
the following elements:
1. Definitions and context (Section 2)
2. Categories for civil Earth observations (Section 3)
3. Priorities and supporting actions for civil Earth observations (Section 4)
5 Non-Federal entities encompass State, regional, local, and tribal governments; nongovernmental organizations; academia;
citizen scientists; commercial firms; international organizations; and foreign governments.
6 National Aeronautics and Space Administration Authorization Act of 2010 (Public Law 111–267):
SEC. 702. INTERAGENCY COLLABORATION IMPLEMENTATION APPROACH. -The Director of OSTP shall establish a mechanism
to ensure greater coordination of the research, operations, and activities relating to civilian Earth observation of those
Agencies, including NASA, that have active programs that either contribute directly or indirectly to these areas. This
mechanism should include the development of a strategic implementation plan that is updated at least every 3 years, and
includes a process for external independent advisory input. This plan should include a description of the responsibilities of the
various Agency roles in Earth observations, recommended cost-sharing and procurement arrangements between Agencies
and other entities, including international arrangements, and a plan for ensuring the provision of sustained, long-term space-
based climate observations. The Director shall provide a report to Congress within 90 days after the date of enactment of this
Act on the implementation plan for this mechanism.
7 National Earth Observations Task Force, National Strategy for Civil Earth Observations, Washington, DC: Office of Science and
Technology Policy, April 2013.
54. Agency roles and responsibilities for sustained observations from airborne, terrestrial, and marine
platforms (Section 5)
5. Agency roles and responsibilities for civil Earth observations from space (Section 6)
6. Summary guidelines on implementation and coordination of the National Plan (Section 7)
7. Summary results from the 2012 EOA supporting the identified priorities, EOA caveats, and a list
of abbreviations used in this document (Annexes I-III).
As required by law, this National Plan will be updated every three years to ensure greater coordination of
Federal civil Earth observation systems.
This National Plan serves as strategic guidance and sets out to fulfill agency mandates and national
objectives via a balanced portfolio approach to civil Earth observations. The National Plan provides a
framework that allows for the establishment, evaluation, and evolution of a balanced portfolio of
observations and observing systems. This new framework builds on recent progress Federal agencies have
made in taking fuller advantage of Earth observations across traditional boundaries to address their
mission objectives and policy goals.
62. Definitions and Context
The National Strategy defined key terms and concepts for routine assessment and planning for Earth
observations. These and other definitions are used throughout the National Plan.8
2.1. Definition of Earth Observations and Earth Observing Systems
“Observation” refers to the act of making and recording the measurement of a phenomenon. “Earth
observations” are described in the National Strategy as follows:
The term “Earth observations” refers to data and products derived from Earth-observing systems
and surveys. The term “observing systems” refers to one or more sensing elements that directly
or indirectly collect observations of the Earth, measure environmental parameters, or survey
biological or other Earth resources (land surface, biosphere, solid Earth, atmosphere, and
oceans).9 Sensing elements may be deployed as individual sensors or in constellations or networks
and may include instrumentation or human elements. Observing-system platforms may be mobile
or fixed and are space-based, airborne, terrestrial, freshwater, or marine-based.
Earth observations are increasingly provided by integrated systems that support remotely sensed, in situ,
and human observations. The benefit of these observations comes from the analysis of Earth-system
parameters from different geographic or temporal perspectives, providing more complete monitoring of
the target phenomenon and its interaction with other phenomena.
2.2. Societal Benefit Areas (SBAs)
The National Strategy laid out a process to evaluate Earth-observing systems based on the information
products and data streams they support in defined SBAs. This approach was adopted by the NSTC CENRS
in February 2012, is consistent with the Federal Government’s sustainability objectives, and aligns with
international agreements and prior interagency work in this area.10 The first assessment of Earth
observations was organized around 13 societal themes, which consisted of 12 SBAs (listed alphabetically
below) and the reference measurements that underpin them:
Agriculture and Forestry: Supporting sustainable agriculture and forestry
Biodiversity: Understanding and conserving biodiversity
8 This National Plan contains both bulleted and numbered lists. Numbered lists indicate the order of priority, whereas bulleted
lists indicate equal priority.
9 Model outputs are generally excluded from this definition; however, some observing systems produce and record measures
and observations that may require sensor models to process raw observations to a form in which they are exploitable.
10 Group on Earth Observations, Global Earth Observation System of Systems (GEOSS): 10-Year Implementation Plan Reference
Document, 2005, http://www.earthobservations.org/documents/10-Year%20Plan%20Reference%20Document.pdf;
Interagency Working Group on Earth Observations, Strategic Plan for the U.S. Integrated Earth Observation System, NSTC
Committee on Environment and Natural Resources, 2005,
http://www.whitehouse.gov/sites/default/files/microsites/ostp/eocstrategic_plan.pdf .
7 Climate: Understanding, assessing, predicting, mitigating, and adapting to climate variability and
change
Disasters: Reducing loss of life, property, and ecosystem damage from natural and human-
induced disasters
Ecosystems (Terrestrial and Freshwater): Improving the management and protection of
terrestrial and freshwater ecosystems
Energy and Mineral Resources: Improving the identification and management of energy and
mineral resources
Human Health: Understanding environmental factors affecting human health and well-being
Ocean and Coastal Resources and Ecosystems: Understanding and protecting ocean, coastal, and
Great Lakes populations and resources, including fisheries, aquaculture, and marine ecosystems
Space Weather: Understanding, assessing, predicting, and mitigating the effects of space weather
on technological systems, including satellites, power grids, communications, and navigation
Transportation: Improving the safety and efficiency of all modes of transportation, including air,
highway, railway, and marine
Water Resources: Improving water-resource management through better understanding and
monitoring of the water cycle
Weather: Improving weather information, forecasting, and warning
Reference Measurements: Improving reference measurements—the underpinnings of all SBAs—
such as geodesy, bathymetry, topography, geolocation, timing, and the fundamental
measurement systems and standards supporting them
These SBAs are interconnected at local, regional, national, and international scales and include scientific
research, economic activities, and environmental and social domains. Many involve critical government
functions, such as the continuity of national government and the protection of life and property.
2.3. Earth Observation Assessment (EOA)
The first EOA was conducted between February and August 2012 under the auspices of the NEOTF. The
NEOTF principals designated a working group to collaborate with appropriate subject matter experts
(SMEs). OSTP reached out to the subcommittees of CENRS to identify the 13 subject matter leads, who in
turn recruited over 300 Federal experts to participate in 26 analytical workshops.
This EOA quantified the impacts of existing observing systems on a set of key objectives defined for each
SBA listed in Subsection 2.2. This resulted in the identification of 362 observing systems and surveys, of
which 145 were designated as “high impact.” Results for the high-impact systems were grouped in tiers
8and ordered based on a numeric impact score derived through the assessment process. These results are
presented in Annex I.11
The EOA provided two new perspectives to complement the work of previous studies in this area, namely
(a) the inclusion of non-satellite systems and (b) a robust analysis of the impact of each system with
respect to its delivery of services to society.12
The next EOA, which is planned to begin in 2014, will seek additional insight with regard to research
priorities and future needs in addition to existing systems.
2.4. Data-Management Framework, Big-Earth-Data Initiative, and Climate
Data Initiative
While Earth observations are typically produced for a specific purpose, they are often useful for purposes
not foreseen during their development. Earth observation data can be reused, managed, and preserved
such that both anticipated and unanticipated users can find, evaluate, understand, and use the data in
new ways to achieve added benefit. The National Strategy, therefore, set out a comprehensive data-
management framework to promote improved discoverability, accessibility, and usability of Earth
observation data.
The National Plan includes improving data access, management, and interoperability as a supporting
action. The Big Earth Data Initiative (BEDI) is designed to support this objective (see Section 4.2.2). In
addition, the President’s Climate Action Plan13, announced in June 2013, launched a Climate Data Initiative
to leverage extensive Federal climate-relevant data to stimulate innovation and private-sector
entrepreneurship in support of climate resilience.
2.5. Relationship between the National Plan and Existing Studies
The National Plan can be understood as the first in a series of interagency efforts to analyze Federal-Earth
observation priorities. It can also be understood in connection with other internal and external
assessments. Of these assessments, an important example is the 2007 National Academies report, Earth
Science and Applications from Space, known as the Earth Science decadal survey. This and other reports
of the National Academies provide substantial material for understanding Earth-observation priorities of
11 See the National Strategy for a complete description of the assessment process.
12 The EOA provided an innovative approach to understanding the impacts of Federal Earth-observation systems. The results of
the EOA, however, must be considered in the context of the limitations of this assessment, which is the first of its kind. For
example, fundamental research about the Earth system underpins each of the 12 SBAs, and each team was invited to
consider research priorities critical for its area. The EOA process, however, was fundamentally service-oriented, and the
constraints of time and the breadth of the analysis prevented a full accounting of research needs in every area. Therefore the
EOA’s results for research observation systems may not reflect the full impact of those systems on climate and other
research needs. See Annex II for a full list of caveats.
13 Executive Office of the President, The President’s Climate Action Plan, 2013, http://www.whitehouse.gov/share/climate-
action-plan.
9the research community. This National Plan was informed by the results of the EOA, by these reports, and
by related interagency deliberation.
2.6 External Input and the Request for Information
In developing this first National Plan, OSTP sought input from external stakeholders through a Request for
Information (RFI).14 Issued in November of 2013, the RFI solicited input on the major themes, categories,
and priorities for the National Plan. OSTP received responses from a range of stakeholders, including
individuals, academic institutions, private-sector companies, and industry organizations. Using both
qualitative and quantitative approaches, OSTP analyzed the RFI responses and incorporated input into the
National Plan where appropriate. OSTP will seek and incorporate external input in future editions of the
National Plan.
14 Office of Science and Technology Policy, National Plan for Civil earth Observations; Request for Information, Office of the
Federal Register, 2013, https://www.federalregister.gov/articles/2013/11/12/2013-26890/national-plan-for-civil-earth-
observations-request-for-information; see the USGEO web page for a list of public responses to the RFI for the development
of the National Plan for Civil Earth Observations,
http://www.whitehouse.gov/administration/eop/ostp/library/shareyourinput/earthobsrfi.
103. Categories for Civil Earth Observations
3.1. Overview of Categories
The National Plan defines two categories of observations that reflect the intention to distinguish systems
and programs based on the duration of Federal commitment to the period of observation: either
sustained over time or experimental and therefore time-limited. Sustained observations may be used to
support public services and research for the public interest. Experimental observations may be used to
support a variety of purposes, including: advancing human knowledge through basic and applied research,
exploring technical innovation, or improving public services.
A fundamental goal of this National Plan is to achieve a balanced portfolio across and within both
sustained and experimental categories of observations. Any Federal agency may engage in sustained and
experimental observations to meet its mandate, achieve specific missions, or to support national
objectives. These new categories of observation are designed to provide clarity in the Nation’s approach
to Earth observations. This categorization, based on the duration of commitment, is necessary for
prioritizing the Nation’s Earth-observing portfolio.15
This National Plan recognizes, however, that all civil Earth observations collected by the public sector are
considered public goods, and that data from systems in any one category may be reused for purposes
other than those for which the observation was originally taken. Such reuse is enabled by the rapid
exchange and integration of data made possible by modern information technology (see Subsection 2.4
on data management).
For example:
Sustained observation systems supporting the delivery of public services contribute significant
data and information to both short- and long-term research programs.
Sustained observation systems for research, as well as experimental observation systems, provide
data and information that are routinely exploited in support of the ongoing, regular delivery of
public services.
Experimental observation systems supported by research and development funds can yield new
systems or observation capabilities that can then be applied to service-driven observation
programs.
15 By focusing on duration, this new framework overcomes the conceptual limitations of the traditional categories of “research”
and “operational” observations, which conflate three elements of Earth observation planning: purpose, duration, and state.
The purpose of the system reflects the rationale for the agency’s deployment of the system—to deliver public services or to
conduct research in the public interest (including basic research). Duration reflects the time period over which the agency
intends to perform the observation. State refers to the status of an observing system as it evolves—from testing, through
development, to operations—no matter the intended purpose or duration of the agency commitment to the observation
system. Whereas research clearly refers to purpose, the term “operational” has come to mean purpose, duration, and state,
particularly in the defense and aerospace communities, in the sense of “supporting ongoing operations.” Under the National
Plan’s new framework, civil Earth observation systems previously characterized as “operational” are included under
“sustained observations for public services.”
11While recognizing the value of data across all categories, this approach to categorizing observing systems
as either sustained or experimental is a step toward addressing a key policy challenge: determining when
experimental Earth observations should be transitioned to sustained observations for research or to help
deliver public services. This transition may occur within or between agencies. The policy challenge is
greatest in the case of multi-agency collaboration. By recognizing that multiple agencies engage in both
experimental and sustained observations, the new terminology for sustained observations allows for long-
term measurement responsibilities and plans to be more easily and accurately characterized within
individual agency budgets.
This National Plan acknowledges the outstanding need to address cross-agency, experimental, and
sustained observation challenges, and it initiates an interagency process for establishing government-
wide priorities for sustained observations, either for service or research purposes.
3.2. Sustained Observations
For the purposes of this National Plan, sustained observations are defined as measurements that Federal
agencies are committed to taking on an ongoing basis, generally for seven years or more, at a level of
quality sufficient for the primary purpose for which the measurement is taken.16 Such long-term
commitments include pre-planned improvements and service-life extension programs. Sustained
observations are divided into two purpose-driven subcategories: those for public services and those for
Earth system research for the public interest. These subcategories are further described in the following
two subsections.
3.2.1. Sustained Observations for Public Services
Sustained Observations for Public Services are those systematic measurements necessary to support
products routinely generated for, and widely disseminated to, the general public. These include vital
measurements supporting continuous data streams and data products for preservation of life and
property (e.g., for severe weather, seasonal and inter-annual climate forecasts, earthquakes, volcanoes,
tsunamis, floods, fire detection and suppression, and air quality alerts); routinely generated current
conditions data (e.g., for transportation, agriculture, energy, and weather forecasting); and data relating
to ongoing resource and environmental management (e.g., for trends analysis, stock assessments, water
quality, and forestry).
The Earth-observation systems that produce these sustained observations constitute vital national
infrastructure, providing well-established, direct benefits to society and the economy (e.g., protecting life
and property and securing food and water during disasters). These systems are in place to provide the
Nation with essential information to promote and sustain economic vitality (e.g., transportation,
agriculture, energy, water, and natural resource management) and public safety (e.g., hazard warnings).
These data streams form the foundation for critical scientific research to improve fundamental
understanding of the Earth system and its changing climate. They provide accurate forecasts, surveys, and
16 For the purposes of this National Plan, a commitment to maintain observations for seven years or more is considered to be
the minimum threshold necessary for provision of long-term services and research in the public interest. Most experimental
observation programs are not planned to exceed seven years.
12records that support U.S. scientific, economic, and commercial interests and, as such, are essential to the
maintenance of national and economic security.
Sustained observations for public services are subdivided into two tiers, described below.
3.2.1.1. Tier 1
Based on results of the EOA, the following measurement groups support a majority of the societal
themes.17 These measurement groups represent the highest priority measurements in the category of
sustained observations for public services. They are listed below in priority order.
1. Weather and seasonal climate monitoring and prediction: Observations in this measurement
group characterize phenomena such as precipitation, storms, wind, floods, sea state, drought,
wildfires, ice, air quality (including ozone), and weather risks to human health and transportation.
They also contribute to short-term climate forecasts. These observations derive from next-
generation radar on fixed and mobile platforms; atmospheric sounding from space and airborne
platforms, oceanic measurements, and spectral and radiometric imaging of the Earth surface.
2. Dynamic land-surface monitoring and characterization: Observations in this measurement group
support food and water security, water availability and quality, fire detection and suppression,
human health, forestry, soil characterization (including soil moisture), hazards mapping and
response, and natural-resource management. They particularly derive from multispectral and
hyperspectral imaging from space and airborne platforms, forest inventory, and soil data
collection.
3. Elevation and geo-location: Observations in this measurement group support food and water
security, hazard and risk mapping, and natural-resource management. These observations
particularly include topography and bathymetry, surface modeling, hydrologic data, and
ecosystems-related data as derived from radar and laser sensors on satellite-based, airborne, and
terrestrial platforms, as well as positioning, navigation, and timing satellites, such as those used
for the Global Positioning System (GPS).
4. Water level and flow: Observations in this measurement group support coastal inundation and
inland flooding, water availability, hydropower management, transportation, human health,
water equivalent of snow, and tsunami hazard preparedness. They particularly derive from
coastal and inland water level and flow measurements, seafloor topography, and ocean
topography from satellite altimetry.
17 These measurement categories were derived by reviewing the primary purpose of the 15 highest impact systems identified
by the EOA across all SBAs. They are designated as Tier 1 systems in this National Plan. The examples of questions and
phenomena supported by each measurement group are meant to be illustrative and do not represent the fullest range of
possible uses for these measurements. A list of systems supporting Tier 1 measurements can be found in Table 1 in Annex I.
133.2.1.2. Tier 2
The following measurement groups are identified based on the remaining high-impact observing systems
identified in the EOA.18 These measurement classes are of next-highest priority and importance in the
category of sustained observations for public services.19 They are listed here in alphabetical order.
Ecosystem and biodiversity resource surveys for terrestrial, freshwater, and marine ecosystems,
including fisheries and wildlife management
Environmental-quality monitoring, specifically disease-vector surveillance, water quality, and air
quality associated with changes in atmospheric composition, including particulate matter and
short-lived climate pollutants
Geo-hazard monitoring for earthquakes, volcanoes, landslides, regional and local subsidence
(e.g., sinkholes), inundation, and tsunamis
Space-weather monitoring of geomagnetic storms, sunspots, solar flares, associated x-ray and
ultraviolet emissions, solar wind (including coronal mass ejection), solar energetic particles,
traveling ionosphere disturbances, and associated changes of the Earth’s geomagnetic field and
ionosphere for their impact on human activities
While the EOA provided higher overall scores to those systems that were identified as impacting more
than one SBA, some of these systems contribute critically or are essential to key objectives in one or more
SBAs. Some Tier 2 systems are critical in that they are the only observing systems available for a particular
objective, so that objective could not be achieved without them.
3.2.2. Sustained Observations for Earth-System Research in the Public Interest
The public interest also requires sustained observations for understanding how and why the Earth system,
including the Earth’s climate, is changing. These observations are those measurements supporting
continuous data streams or routinely generated data products that are needed for basic and applied
research to advance human knowledge (climate-change research, solid-Earth research, meteorological
research, ocean and water-cycle research, and space-weather research), to improve public services, and
to support public and general education. These observations often require multi-year data collection and
maintenance within a specific sampling frame (e.g., measurements taken at a specific location at a given
interval). The purpose of such sustained observations is often long-term research, but the data collected
often have immediate benefit for society and are frequently integrated into sustained services.
18 The measurement categories in Tier 2 were derived by analyzing the primary purpose of the observing systems not covered
in Tier 1. Tier 2 includes the remaining high-impact systems identified in the EOA across all SBAs, and also includes additional
special-purpose systems designated as high impact to specific individual SBAs. A list of systems supporting Tier 2
measurements can be found in Table 2 in Annex I.
19 The tiers prioritize measurements, not the SBAs that the measurements support (e.g., understanding geo-hazards is not
ranked below understanding weather hazards, but weather hazard measurements support a wider range of uses than geo-
hazard measurements).
14The following measurement categories, presented in alphabetical order, were identified for sustained
research observations.20
Atmospheric state, including measurements of temperature, pressure, humidity, wind, and ozone
at the accuracy required for long-term climate research, and, as appropriate, to improve short-
and medium-range weather forecasting;
Cryosphere, including measurements of ice sheets, glaciers, permafrost, snow, and sea ice extent
and thickness;
Earth’s energy budget, including total solar irradiance and Earth’s radiation budget, and the
reflectance and scattering properties of clouds, aerosols, and greenhouse gases, specifically for
understanding Earth’s sensitivity to climate change;
Extremes, including specific and routine observations for the study of extreme temperatures,
drought, precipitation, and wind;
Geo-hazard research, including monitoring land-surface deformation to better understand
regional and local disaster potential and effects, and the monitoring of phenomena that precede
natural disasters, such as seismic, stress, strain, and geochemical and temperature changes;
Greenhouse gas emissions and concentrations, including understanding sources and sinks of
greenhouse gases, as well as changes in long-lived greenhouse gas and short-lived climate-
pollutant concentrations over time;
Integrated geophysical and biosphere characterization (terrestrial, freshwater, and marine),
including long-term dynamics to understand ecosystem change and biogeochemical processes,
particularly the carbon cycle;
Ocean state, including observations of sea levels, temperature, salinity, pH, alkalinity, currents
and characteristics of marine ecosystems;
Space weather, including long-term understanding of the Earth-Sun relationship, solar dynamics,
and the drivers of space-weather impacts at the Earth’s surface, such as coupling between space
weather and geomagnetic storms; and,
Water cycle, including the analysis of droughts, floods, and water availability (precipitation, soil
moisture, snow-water equivalent, evapotranspiration, groundwater, surface water, and runoff).
3.3. Experimental Observations
Experimental observations are defined as measurements planned for limited durations, generally seven
years or less, that Federal agencies are committed to making for limited research and development
purposes. These observations may be taken for a variety of purposes: to advance human knowledge
20 The 2012 EOA included climate and related global change research needs as an SBA, but did not systematically prioritize
research observations (see Footnote 13). Therefore, for the purposes of the National Plan, these measurement categories
have been identified but not prioritized. Future assessments will address the question of priorities for sustained research in
consultation with external stakeholders, including the National Academies, as appropriate.
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