House of Commons - Science and Technology

Select Committee on Science and Technology Written Evidence

APPENDIX 19

Memorandum from the Department for Environment, Food and Rural Affairs

BACKGROUND

1. Defra welcomes the opportunity to contribute to the House of Commons Science and Technology Committee's inquiry into the use of scientific advice in the development of policy. Defra has a broad and complex agenda, and a wide range of evidence (including, but not limited to scientific evidence) underpins delivery of this agenda. Defra's Chief Scientific Adviser (CSA), Professor Howard Dalton, plays a central role in ensuring that Defra's policies are appropriately evidence based, and he is supported in that role by strategic advice from Defra's Science Advisory Council (SAC).

2. The Committee asked Defra for information on:

"the way in which the Chief Scientific Adviser and the Science Advisory Council contribute in practice to the development of policy in the Department, with particular reference to the way in which research and evidence has informed the development and monitoring of UK 2010 biodiversity targets. The memorandum should also include any comment on whether the processes used in this example is typical or in any way exceptional in terms of the way research and evidence is handled in the Department."

3. This memorandum is the Departmental response to this request, and focuses on two areas. First, the role that the CSA and SAC play in Defra's work in general is described, and then the more specific question of their role and involvement in biodiversity policy and the development and monitoring of UK biodiversity targets is considered. In the latter case some background information concerning UK biodiversity policy is also provided.

THE USE OF SCIENCE AND RESEARCH IN DEFRA—THE ROLE OF THE CSA AND SAC

The Chief Scientific Adviser (CSA)

4. The Chief Scientific Advisor to Defra is an independent scientist, brought into the Department on a secondment basis from academia to ensure that Defra's policies and operations are appropriately evidence based. The CSA's roles include:

— Providing advice to Ministers on key scientific issues of policy relevance;

— Ensuring that quality and fit-for-purpose science is used to inform policy-making and operational decision taking within Defra;

— Engaging with stakeholders, particularly the scientific community;

— Raising the profile of Defra's science, especially the importance of science for sustainability.

5. Concerning the first two objectives, which are particularly relevant to the Committee's inquiry, the CSA operates at both a strategic level, ensuring that processes and resources are in place to deliver the required evidence base, and at an operational level, intervening personally in areas where there are particularly challenging or contentious areas of science. Recent examples of the latter include:

6. In order to ensure the delivery of an appropriate science evidence base to underpin Defra's policy development, each policy Directorate General includes scientists in its teams and appoints a Senior Science Co-ordinator, responsible for oversight of the professional standards of scientists in the DG and for keeping the CSA informed of relevant developments and issues related to their work.

7. An important component of the CSA's strategic work over recent years has been the Science in Defra Change Programme (SIDCP). The aim of this work can be summarised as "right science, right scientists". To ensure that Defra has access to the "right science" the CSA has put in place robust quality assurance procedures, developed Defra's top level science strategy, and initiated a programme of horizon scanning and futures work. To provide the "right scientists" for Defra, the CSA's Head of Science Profession project is aimed at developing further and enhancing the considerable in-house scientific expertise. Further details of these work areas are provided in the following paragraphs (8-18).

8. In 2003, the CSA put in place a team, independent of policy and funding lines, to develop strategies and policies to improve and assure the quality of the scientific work across the Department. There are four major strands to this work:

— Peer review of research proposals;

— Peer review of outputs;

— Quality Assurance of the research process; and

— Institute audits.

9. Peer review of research proposals has long been key to the Department's strategy for assuring the quality of its science. It is Defra's policy that all significant[89] research is peer reviewed by at least two independent scientists prior to funding. Last year, this resulted in over 80% of new research (by cost) being peer reviewed prior to funding.

10. In addition to proposals, outputs from the Department's science are increasingly peer reviewed. Recently, we reviewed the Farmland Conservation and Biodiversity Research programme, in which the reviewers concluded that "the overall message . . . is that Defra is receiving good scientific evidence from its . . . programme"[90].

11. To help assure the quality of the research process, Defra has lead, along with other public sector research funders, the development of the Joint Code of Practice for Research[91]. This cross-government initiative lays down the basic principles for carrying out robust, auditable research. Since July 2004, all research projects funded by the Department have been required to be conducted in compliance with the Code.

12. Defra conducts scientific audits of its three laboratory agencies[92] on a five year cycle. These are carried out by a panel of independent, international experts drawn from the relevant fields and provide an external assessment of the quality, balance, scope and appropriateness of the scientific work carried out at each of the agencies. The Department is also represented on the Visiting Groups to BBSRC institutes where it makes a significant investment of research spend.

13. The CSA leads the development of Defra's Evidence and Innovation Strategy (E&IS). For the current round (2005-08), a consultation document was published in October 2005[93], which provides a current assessment of Defra's evidence and innovation needs. This strategy follows on from Defra's first Science and Innovation Strategy 2003-06, published in May 2003[94], and the Evidence and Innovation report, entitled "Evidence and innovation: Defra's needs from the sciences over the next 10 years", published in July 2004[95].

14. The E&IS aims to improve our understanding of how evidence and innovation can best support delivery of Defra's Strategic Outcomes (as set out in Defra's Five Year Strategy[96]) and how our programmes will need to evolve in the future. The E&IS will also help refocus our use of knowledge (including science, social science, economics, statistics and engineering) in achieving Defra's objectives. The E&IS project will provide the basis for development of a long-term science procurement strategy, which will include the strategy for Defra's laboratories.

15. Also contributing to the E&IS process is an internal review of the Department's R&D investment, designed to re-align our research investment to enable delivery of our strategic outcomes and policy priorities. This will inform the R&D allocations for the final year of the period covered by the 2002 Spending Review (ie 2007-08) and set the longer-term direction of travel over the Comprehensive Spending Review (CSR) period.

16. A further aspect of the CSA's science strategy work focuses on issues that cut across organisational boundaries within Defra. For example, the CSA has identified Earth observation[97] as a key future technology for informing and delivering policy across the Department. The breadth of potential uses and the need for departmental, national and international coordination mean that Defra needs to take a strategic approach to technology development and adoption. The CSA is therefore developing a Earth Observation Strategy in coordination with key business beneficiaries with the aim of developing Defra's effectiveness in using Earth observation data and services.

17. Defra's Horizon Scanning and Futures (HSF) programme is considered to be one of the longest running and most diverse government HSF programmes. The use of HSF methodologies is helping the Department to develop anticipatory skills to spot potential risks and opportunities, as well as future proofing policies and strategies, thereby generating efficiency gains. They also are also important for developing insight, and help develop and rehearse possible futures and consider alternatives. Defra's Horizon Scanning and Futures programme is gaining valuable experience and expertise in the use and application of HSF methodologies within its research. The team has also developed an extensive network of futures experts and practitioners across government, academia, and the private sector. Our aim is to create a model of best practice and a pervasive understanding of HSF in order to embed it across the Department to ensure that it is utilised by policy teams to the best effect.

18. The Head of Science Profession (HoSP) project has been working to define and implement the CSA's role as "Head of Science Profession" for Defra's science and technical specialists. The Cross-Cutting Review of Science and Research (2002) made specific recommendations for the better management, development and deployment of scientific staff and alluded to a "Head of Science Profession" role for Chief Scientific Advisers. The HoSP role is to create opportunities for scientists to continually developing their skills and expertise, to be deployed in the most effective way to contribute to Defra's strategic objectives. The role was defined in consultation with Defra scientists by carrying out a wide-reaching consultation to understand their needs and aspirations, and how they feel a Head of Profession can best support them in their current role and career. Recommendations from the consultation have formed the basis of an implementation plan which is the means of turning the high-level role outlined in the findings into an active HoSP role for the CSA. The implementation plan outlines work areas which will be delivered to raise scientific capability in Defra.

The Science Advisory Council (SAC)

19. In order to further improve the access that Defra has to scientific advice the CSA initiated the creation of Defra's Science Advisory Council (SAC). The Council was established in February 2004 to support the CSA in providing Defra with independent, expert, and strategic advice on the science underpinning the Department's policies. The SAC communicates its advice to the CSA, and through the CSA to Ministers.

20. The SAC is an independent non-departmental public body, established in accordance with the Office of the Commissioner for Public Appointments (OCPA) Code of Practice and in line with guidance provided in the Nolan Principles of Public Life. The SAC has developed its own detailed Code of Practice, which emphasises the Council's open and transparent mode of operation, and which is based on the OST's more general Code of Practice for Scientific Advisory Committees. Full details of the SAC, its membership, papers and advice can be found on the SAC website[98].

21. From April 2006, there will be 16 members of the Council, with expertise across a broad range of topics relevant to Defra. The full SAC meets four times a year, with at least one meeting a year being open to the public. However, the majority of the Council's work is taken forward through sub-groups, which are established where appropriate to carry out studies and other pieces of work.

22. The SAC's terms of reference are as follows:

The Science Advisory Council (SAC) will help to ensure the quality and appropriateness of Defra's various scientific activities and use of science, by providing strategic advice on all of Defra's science activities and their relationship with both Defra's policy goals and the wider UK and international science base and horizons. To achieve this it will:

— provide independent and published advice to the Chief Scientific Adviser (CSA), and through the CSA to Ministers, on:

— the strategic direction of, and priorities for, Departmental science;

— the balance, relevance and adequacy of science activities supporting Departmental objectives;

— broad strategic issues, priorities and policies from a science perspective;

— the design of procedures relating to science advice; and

— pressing science issues facing Defra.

— identify emerging challenges and opportunities, develop possible responses, and participate in horizon-scanning and long-range planning exercises;

— act as an important source of advice to the CSA on national emergencies in Defra's areas of responsibility, including acting as a conduit to specialists in the science community; and

— provide independent review of Defra's scientific activities, including its response in emergencies.

23. Since its inception, the SAC has developed its awareness of current Defra activities while starting to examine the underpinning process of science in Defra (risk management, and governance of science advisory bodies amongst other things).

24. The SAC has produced recommendations to the CSA on the following topics:

— Review of the governance of Defra Science Advisory Bodies;

— Quality assurance and peer review of Defra science;

— Review of the science evidence base underpinning the Foot and Mouth Disease element of the generic contingency plan;

— Input to the development of Defra's Evidence and Innovation Strategy—recommendations made on both content and process used for consultation; and

— An independent literature review of bovine TBWork is also in progress to review of the science evidence base underpinning the Avian Influenza element of the generic contingency plan.

25. A process of engagement between the SAC and Defra policy Directorate Generals has been initiated in order to:

— increase SAC member awareness of Defra's structure and key priorities and the science that underpins delivery of these, and;

— to establish channels of communication between SAC and Defra, to enable Defra staff to become more familiar with the purpose and the work of the SAC and help to ensure that the SAC work programme focuses on key priorities for Defra science.

26. An on-going piece of work that may be of relevance to the Committee's enquiry is an "end to end" review of how science feeds into policy in Defra. This work is being conducted by the SAC Governance sub-group with the following terms of reference:

— To consider Defra's policy-science interface, in particular whether research as commissioned was of value in informing policy once delivered. It will identify and endorse good practice in Defra and advise the Department on how science can inform policy more effectively (in terms of cost-effectiveness and impact on policy). The sub-group will:

— Consider how policy needs are identified in Defra's Directorate Generals.

— Consider how scientific research questions are set, including how Defra's stakeholders are engaged in the process.

— Evaluate how science feeds into policy and whether it is done in a cost-effective way.

— Consider how Defra's policy-science interface may be developed further.

UK BIODIVERSITY TARGETS

27. The maintenance and enhancement of UK biodiversity is a key policy area for Defra, forming a central part of our strategic priority `Protecting the countryside and natural resource protection'. Defra's priority reflects international commitments to significantly reduce the rate of biodiversity loss by 2010 agreed at the 6th Conference of the Parties to the Convention on Biological Diversity[99] and subsequently adopted in the Plan of Implementation of the World Summit on Sustainable Development.[100] At the European level, the target of halting biodiversity loss by 2010 was agreed at the Gothenburg European Council and the Kiev Council of Europe.

28. At a UK level, biodiversity targets have been developed as part of the UK Biodiversity Action Plan (UKBAP) published in 1994. Specific targets have been agreed for around 400 priority species and 40 priority habitats. Implementing the UKBAP and monitoring progress is the responsibility of the UK Biodiversity Partnership which consists of a range of bodies including Defra, statutory conservation agencies and NGOs. The UK Biodiversity Partnership is co-ordinated by the Biodiversity Partnership Standing Committee (BPSC) which has established two support groups—the Biodiversity Research Advisory Group (BRAG), which is chaired by Defra, and the Biodiversity Reporting and Information Group (BRIG).

29. The targets for priority species and habitats within the UKBAP were originally published in the late 1990s and therefore pre-date international commitments to the 2010 target. The targets are currently under review, overseen by the BPSC, and this review is due to be completed during 2006. The review of targets for priority habitats and species is being co-ordinated by English Nature, while the review of the priority lists themselves is being co-ordinated by Joint Nature Conservancy Council. Further details of the review are available on the UKBAP web site[101].

30. In addition, in 2005, the BPSC agreed to develop a set of headline indicators for assessing achievement of the 2010 target. This work is ongoing and will build on existing Sustainable Development Indicators and other indicators developed within country strategies, following the framework established by the Convention on Biological Diversity (Decision VII/30).

31. Defra also leads on the England Biodiversity Strategy. A baseline set of indicators for this strategy was published in 2003, and are currently being updated to assess progress up to 2006. These indicators relate to the more specific objectives of the Strategy, and in particular the success of integration of consideration for biodiversity in other sectors (eg agriculture, forestry and development).

32. Delivery of the UKBAP is underpinned by a significant evidence base in the form of specific research projects, and long-term monitoring programmes. This research is funded and undertaken by a large number of organisations including Defra, the Devolved Administrations, statutory agencies, research institutions and NGOs. In addition, scientists working in policy Directorates General are members of Biodiversity Action Plan (BAP) groups including the hedgerows and arable field margin Habitat Action Plan (HAP) groups. Their input covers the provision of advice on Defra research and other pertinent science issues. They also take the lead in procuring new research based on recommendations arising from the groups. It is the responsibility of these scientists to keep the CSA informed of significant scientific developments related to the BAP and HAP groups.

33. While evidence needs are important across the range of UKBAP activities, identifying cross-cutting research needs is the specific remit of BRAG, a scientific and technical advisory group which is currently chaired by Defra.

34. Defra spend in 2005-06 on programmes that contribute significantly to the evidence base for the 2010 target includes the Wildlife and Countryside (£2 million) and Environmental Stewardship (£2.4 million) research programmes and the Environmental Stewardship Monitoring and Evaluation programme (£1.3m). In addition, there is a significant amount of related work undertaken in other Defra science programmes, for example, water quality, air quality, environmental effects of pesticides and marine environment. Information from these other programmes will add to the evidence base. Further details about Defra's science programmes and projects are available on the Department's website[102].

35. One of Defra's Public Service Agreement (PSA) targets is concerned with UK biodiversity:

Care for our natural heritage, make the countryside attractive and enjoyable for all and preserve biological diversity by:

— Reversing the long-term decline in the number of farmland birds by 2020, as measured annually against underlying trends;

— Bringing into favourable condition by 2010 95% of all nationally important wildlife sites.

36. A considerable amount of research and monitoring underpins these PSA targets, both to assess how well they are being met, and to inform the policies developed to meet the targets. Defra was identified by the National Audit Office as following good practice in adapting policies to address the Farmland Birds target[103]. This involved the use of evidence, analysis, comparison of options, assessing cost effectiveness, and stakeholder engagement.

CSA involvement in biodiversity targets

37. The CSA's involvement in the evidence base related to biodiversity targets has largely been through the activities of Defra scientists working in the policy directorates, and through key underpinning activities in two areas:

— Quality assurance;

— Development of Evidence and Innovation Strategy.

38. Quality assurance of the evidence base underpinning biodiversity targets and their monitoring is provided by a variety of means. First Defra-funded research is subject to the quality assurance procedures introduced by the CSA as described in paragraphs 0-0 above. Adherence to these procedures gives the CSA assurance that the evidence outputs are fit for purpose. Second, evidence procured by other members of the UK Biodiversity Partnership is subject to the quality assurance procedures of those organisations—for example, proposals for Research Council funded work is subject to extensive peer review. Thirdly, evidence used to inform UKBAP is reviewed by various other expert groups convened under the auspices of UK Biodiversity Partnership. Finally, where appropriate, the scientific evidence is published in the peer reviewed literature, further ensuring its quality.

39. The future evidence needs to support Defra's biodiversity targets have been set out in the recent consultation on our Evidence and Innovation Strategy (see paragraphs 0-0 above), and this represents a further key area of CSA involvement. This work has identified key areas of evidence need for the future including the work to underpin the further development of indicators and monitoring. In addition, Defra's Deputy CSA chairs the Biodiversity subgroup of the Global Environmental Change Committee[104] which has roles in ensuring that UK Government policy is informed by the scientific evidence base and in identifying important knowledge gaps.

40. This level of CSA involvement is typical for policy areas within Defra. There are also areas of Defra policy where the involvement is more direct and involves providing advice to Ministers through direct assessment and challenge of the evidence base.

April 2006

86 86 http://www.defra.gov.uk/corporate/consult/badgers-tbcontrols/index.htm Back

87 87 http://www.defra.gov,uk/animalh/tb/pdf/wilesmore141105.pdf Back

88 88 http://www.corwm.org.uk/content-0 Back

89 89 Research directly feeding into policy or decision making and all scientific research costing the Department more that £250k. Back

90 http://www.defra.gov.uk/science/documents/how/programmes/Review_FarmlandConservation.pdf Back

91 http://www.defra.gov.uk/science/documents/QACoP_V8.pdf Back

92 Centre for Environment, Fisheries and Aquaculture Science (Cefas), Central Science Laboratory (CSL) and Veterinary Laboratories Agency (VLA). Back

93 http://www.defra.gov.uk/science/how/strategy.htm Back

94 http://www.defra.gov.uk/science/documents/Delivering_The_Evidence.pdf Back

95 http://www.defra.gov.uk/science/documents/forwardlook/ScienceForwardLook3rd.pdf Back

96 http://www.defra.gov.uk/corporate/5year-strategy/index.htm Back