Memorandum 14
Submission from the Inter-Agency Committee
on Marine Science and Technology (IACMST)
Given the time available, it has not been
possible to consult all our members as fully as we would wish.
Therefore, not all organisations within IACMST necessarily agree
with all of the views expressed below. Many members have submitted
individual responses, as is the norm.
EXECUTIVE SUMMARY
Following a brief description of IACMST, the
submission outlines the importance of the oceans. In addressing
the areas requested by the Committee, particular emphasis has
been placed on: the need for continuing (and strengthening) coordination
across all of the UK marine science community; the urgent need
for new mechanisms to fund sustained measurements that meet a
wide range of user requirements; minimising barriers to the exchange
of data, especially financial transfers between government agencies;
developing better mechanisms to ensure consistent UK delegation
inputs to intergovernmental bodies; find more flexible ways of
participating in the infrastructure of large international satellite
and in situ programmes; the need for better identification
of future skill requirements and the strategies to deliver them;
and transferring the scientific knowledge of ocean acidification
to policy making.
A key general point is that the Government needs
to behave as a coherent commissioner for marine research across
all its departments. We also consider that the brief of IACMST
may need to be changed from one of coordination to actively driving
forward an updated version of the strategy first developed in
CCMST 1990, a seminal report produced by the Coordinating Committee
on Marine Science and Technology (IACMST's predecessor) which
itself was formed as one of the outcomes of the last Select Committee
inquiry into marine science (by the Lords) in 1985-86.
BRIEF INTRODUCTION
TO IACMST
IACMST is a Government committee reporting to
OSI through its Chairman, Sir Howard Dalton, Chief Scientific
Adviser to Defra; it had its first meeting in September 1991.
Primary responsibilities are broad oversight of Marine Science
and Technology (MST) activities within and beyond government agencies
and to ensure the existence of adequate coordination mechanisms.
Its membership is drawn mainly from government organisations and
it depends on developing consensus views to carry out its work.
Where appropriate, some of the achievements of IACMST, as well
as the problems it has identified, are included in the main body.
Further information is contained in the Annex*.
THE IMPORTANCE
OF THE
OCEANS
1. Even though the centre of gravity of
the climate change debate has shifted towards mitigation and adaptation,
especially in the light of the Stern report, the uncertainties
over the extent of the warming, the changes in extreme weather,
and the regional variations in climate change are however still
very large. Improved scientific knowledge of these aspects of
climate change is vital to enable cost-effective planning of appropriate
adaptation measures. The oceans are a key component of the climate
system strongly influencing the timing and distribution of climate
change and variability, eg El Niño, the effect of North
Atlantic temperatures on European winter weather patterns, and
the moderating influence of the Atlantic conveyor and its potential
vulnerability to global warming. The oceans themselves also respond
to the climate. Increased take-up of atmospheric CO2 is leading
to ocean acidification with consequences for the marine ecosystem,
further sea level rise (which is inevitable regardless of any
action to reduce emissions) threatens coastal environments with
huge economic implications and observations of regime changes
in the ecosystem have been related to long-term changes in sea
temperatures. Although these and other issues have been identified,
there is still much that needs to be learnt about the processes
involved through long-term observations and modelling in order
to reduce uncertainties in prediction.
2. Even if climate change were not a matter
for concern, there are many other reasons why marine science is
important for the UK. The increasing competing requirements for
use of the waters around the UK and Europe and the desire to safeguard
its ecosystem make sustainable development a key item on the political
agenda. The intention to place a Marine Bill before Parliament
and the present consultation on an EU Maritime Policy are evidence
of this. The following topics, all mentioned in the 1990 CCMST
Report, are highly relevant in justifying why the UK needs a vibrant
marine science activity today: environmental protection including
living resources (some to meet statutory and regulatory obligations),
exploitation of resources including sea floor, defence, requirements
for technology and spin-offs. Another very significant growth
area is operational oceanography, ie routinely disseminating and
interpreting measurements for forecasting and other purposes,
as already done in meteorology.
ORGANISATION AND
FUNDING OF
UK MARINE SCIENCE
IN THE
POLAR AND
NON-POLAR
REGIONS
3. There is a need for continuing and strengthening
coordination across all of the UK marine science community. Marine
science and technology (MST) responsibilities are distributed
widely across Government departments, agencies and NDPBs. Within
any one of these, MST may be distributed across a number of different
parts of the organisation. Several coordination mechanisms exist
but many suffer from being identified too closely with individual
departments. The developments noted in paragraph 1 and paragraph
2 imply an even greater need for coordination and were recognised
in Charting Progress (2005). An excellent example of a
programme designed to achieve greater internal coordination in
strategic marine science is NERC's Oceans 2025 programme which
has just been awarded nearly £120 million over five years.
4. IACMST's role is independent of any department
but its membership extends across all departments having MST interests
(see Annex for further information on the responsibilities and
activities of IACMST). It is therefore able to provide distinctive
cross-departmental views. Its remit includes "to ensure that
there are satisfactory arrangements for the co-ordination of national
and international MST activities". It should be noted that
this does not mean that IACMST must do all the coordination, but
it does have an important role in ensuring that adequate coordination
exists where required. In some cases IACMST has carried out the
coordination itself (eg UK contributions to the Global Ocean Observing
System, marine data and information activities). However, discussions
are underway exploring the transfer of some of these responsibilities
to a new body arising from the Government's marine stewardship
commitments; the organisation of marine science in the UK is not
static. IACMST also sponsors studies into topics that would benefit
from cross-departmental approach, eg underwater sound and marine
life.
5. Given the total investment in MST (~
£600 million in 1999-2000), the resources available for coordination
across UK policy, industry and research communities are modest
and this is one of the limitations on what can be achieved. IACMST
activities are funded through a combination of a two-person secretariat
funded by one member agency (NERC), a central government pot of
~£50K per annum and annual subscriptions for annually approved
programmes from a few of the member agencies. Coordination for
research itself has been rather well supported, eg by NERC.
6. Overall funding for marine science. Carrying
out marine science, especially in the open ocean, can appear expensive.
The capital cost of research ships with multi-disciplinary capability
in hostile environments is a few tens of million pounds each;
running costs including technical support add several million
more per ship. However, the vessels have a lifetime as a research
platform of 20 years or more and still have a market value beyond
that so it is important to apportion the large one-off costs over
a long period. In an era when satellite oceanography and computer
models have come of age, ships are still essential to provide
data for validation and the additional information needed by users.
Over the last few years, several of the UK's research vessels
have been replaced as they reached the end of their useful life
and it is important that sufficient funding is earmarked to maintain
this resource in the future.
7. At the time of the last Select Committee
inquiry, as recorded in the CCMST report, the NERC marine centres
were midway through a period of retrenchment with a 37% reduction
in staff over six years. CCMST recommended that there should be
consolidation about this smaller base. It would appear that Oceans
2025 marks another period of consolidation in order to sustain
a more limited range of activity to meet funding constraints.
8. The Government is committed to the concept
of evidence-based policy making which in the present context means
making best use of good science. IACMST has identified this as
an important issue meriting further study and highlighted it in
its response to the Marine Bill consultation where, at that stage,
it was difficult to see how the feed-through of marine science
into policy would work. There are several issues: the paucity
of scientific knowledge on which policy decisions necessarily
have to be made; the transfer mechanism itself; and the resources
needed to carry it out. Also, the current preference to focus
research funding on the HEI sector and then provide further funding
to them for Knowledge Transfer may not be the most appropriate
model for the marine sector.
9. There is an urgent need for a new mechanism
to fund sustained measurements that serve UK-wide interests in
a cost-effective way. This has emerged from the requirement to
systematically monitor the health of our seas, to conduct operational
oceanography and to carry out research into the role of the oceans
in climate. It is encouraging to see that NERC has recognised
this problem and devoted one of the themes in its new Oceans 2025
programme to long-term observations. However, there is an over-reliance
on short-term research programmes to provide the longer-term data.
Notable progress towards an integrated approach to monitoring
has been made by establishing the UK Marine Monitoring and Assessment
Strategy (UKMMAS) and IACMST has identified, justified, and costed
the priority observations needed for the UK contribution to the
Global Ocean Observing System which have now been incorporated
into the wider UKMMAS resource requirements. However, a fundamental
difficulty—initially identified by IACMST when it sought
to ensure that the UK was contributing appropriately to the Jason-2
satellite altimeter mission and the Argo profiling float programme
(see paragraphs 13 and 14)—is that the present UK funding
system is not well-suited to funding cross-departmental contributions
to observing programmes. Also, the criteria for monitoring national
needs are different from those used in the evaluation of research
proposals where observations are needed to meet specific, short-term
research objectives. IACMST has provided the methodology for conducting
a cost-benefit assessment to establish the value of maintaining
or stopping long-term monitoring programmes. The seriousness of
this issue has been recognised by UKMMAS, the Environmental Research
Funders' Forum (ERFF) and the Global Environmental Change Committee.
ERFF has highlighted a major difference between the funds allocated
to monitoring the terrestrial UK environment (£500 million)
and those allocated to monitoring the marine environment (£36
million).
10. Compared with other types of data for
both terrestrial and marine environments, data on the biological
resources of the seabed, and some components of the water column,
are very sparse for the UK continental shelf and adjacent oceanic
areas. This deficiency, which is a major constraint on biological
resource mapping, is a major strategic issue for UK marine science
and one which is currently under consideration by UKMMAS.
11. Much progress has been achieved during
the last 20 years in seeking to minimise barriers to the exchange
of data but new challenges have emerged. IACMST established and
coordinated a network of marine data managers (MEDAG) and developed
inventories, catalogues and products as agreed by member agencies.
It has provided a key interface in to European and international
data management. Recently it has moved beyond the traditional
oceanographic parameters of temperature, current, etc to consider
issues associated with photographic and video records. A study
was also completed for Defra on the future needs for marine data
and information and this led to the formation of the cross-UK
Marine Data and Information Partnership (also hosted by IACMST)
in 2005. MDIP is building the framework for marine data stewardship
in the UK in which data collected by any organisation can be managed
in the long term. It will, along with MEDAG, be asked to also
meet the more specific needs associated with the development of
the UKMMAS and the monitoring metadata required by ERFF. A key
issue is the accessibility and interoperability of datasets held
by government-funded organisations. In order to maximise the investment
of public money the philosophy should be to "collect once,
use many times"; this is a principle underpinning the UKMMAS.
However, although this is a simple concept, in practice the way
that Government activities are structured and funded, including
the establishment of Trading Funds, can easily hinder rather than
advance such an approach. There are also some examples of where
ownership of IPR is compromising what can be delivered in terms
of inter-agency working and is a major disincentive for commercial
organisations to propose innovative solutions to problems.
THE ROLE
OF THE
UK INTERNATIONALLY, AND
INTERNATIONAL COLLABORATION
IN MARINE
SCIENCE
12. The main international body for marine
science in the UN system is the Intergovernmental Oceanographic
Commission of UNESCO. The UK lead is delegated to NERC (the lead
on other marine-related activities is taken by appropriate government
departments, eg International Maritime Organisation (DfT) and
International Council for the Exploration of the Sea (Defra/SEERAD).
The UK has been an active participant in the formulation and execution
of many IOC activities, including the development of the Global
Ocean Observing System, the International Oceanographic Data and
Information Exchange committee and, following the Indian Ocean
tsunami, in some aspects of the development of warning systems
for tsunami and other ocean-related hazards—although it
was disappointing that the UK did not respond more positively
to UNESCO's request for technical assistance in developing the
Indian Ocean Warning System. Several IOC members states are becoming
increasingly uncomfortable that the IOC sits in UNESCO. This is
also an issue for the UK as the priorities of DfiD (which is the
UK lead for UNESCO) are not compatible with the growing operational
oceanography agenda of IOC. The IACMST Secretariat has an additional
function as the UK's IOC Office and this helps with coordination.
Also, the present chairman of IOC, provided by the UK, is the
former Secretary of IACMST and this enhances useful liaison.
13. This raises the issue of how the UK
develops better mechanisms to ensure consistent inputs by its
delegates across international bodies. Adequate briefing mechanisms
exist for most of the delegations but many are ad hoc,
as indeed are arrangements for liaison between the delegations.
Much of this stems from the very limited resources available (cross-membership
of the different briefing groups helps but is time consuming and
often has to be arranged at short notice because of the late availability
of documents produced by the international bodies). FCO, assisted
by IACMST, are developing plans to improve overarching aspects
of coordination.
14. Hosting by UK of international project
offices. The strength of the UK in the ocean sciences has ensured
that it provides international leadership, influence and partnership
within International programmes—notably those of the World
Climate Research Programme (WCRP) and the International Geosphere
Biosphere Programme (IGBP)—and has allowed NERC to fund
and manage four International Project Offices (IPOs): WCRP's Climate
Variability (CLIVAR) and World Ocean Circulation (WOCE) projects;
IGBP's Global Ocean Ecosystem Dynamics (GLOBEC), and the Surface-Ocean
Lower-Atmosphere Study (SOLAS). The Met Office also hosts the
Project Offices for the Global Ocean Data Assimilation Experiment
(GODAE) and the Global High Resolution Sea Surface Temperature
Pilot Project (GHRSST-PP). The coordinating function of these
offices is vital for the efficient conduct of very large programmes,
involving many different countries and organisations. The support
provided by the UK is much appreciated by the international community
and helps to raise the international profile of the hosting institutes.
In addition, through hosting these IPOs the UK is able to help
set the scientific agenda of these international projects to maximise
their value for the UK.
SUPPORT FOR
MARINE SCIENCE,
INCLUDING PROVISION
AND DEVELOPMENT
OF TECHNOLOGY
AND ENGINEERING
15. Application of satellite remote sensing
has matured over the last 20 years to the point where it is now
regarded as an indispensable tool for most marine science, particularly
when combined with in situ observations and numerical models.
As stated in paragraph 9 continuity of data is a vital issue,
especially with regard to satellite altimetry because of its demonstrated
capability to measure changes in sea level rise and ocean currents
at regional to global scales to unprecedented accuracies. Specific
challenges are: how to maximise the benefit to the UK from participation
in Global Monitoring for Environment and Security (GMES) and to
ensure that the UK can take advantage of very cost-effective arrangements
for participating in non-ESA satellite programmes that are of
relevance to marine science. For the latter, the UK found it very
difficult to contribute its modest share of the Jason-2 altimeter
mission costs, despite intervention by the Government Chief Scientific
Adviser. The UK should also consider investing in constellations
of small satellites. This would overcome some of the sampling
problems associated with observing the oceans and may also open
up new possibilities for UK industry.
16. Autonomous in situ systems are
vital for many applications. A major success has been the Argo
profiling float programme in which the upper ocean is measured
every few hundred kilometres every 10 days. The target figure
of 3,000 floats has almost been achieved. Marine scientists across
the world have been mobilised into deploying the floats and analysing
the data from them. The UK has played a significant role but IACMST
remains concerned about long-term funding from the UK. It is noted
that UK industry is not involved in float manufacture. However,
a strong link between UK scientists and industry has led to the
pioneering Autosub system which has recently demonstrated its
ability to operate under ice shelves as well as in the open ocean.
THE STATE
OF THE
UK RESEARCH AND
SKILLS BASE
UNDERPINNING MARINE
SCIENCE AND
PROVISION AND
SKILLS TO
MAINTAIN AND
IMPROVE THE
UK'S POSITION
IN MARINE
SCIENCE
17. In its 1990 report, CCMST highlighted
the difficulties in training and retaining sufficient scientists
and technologists. They recommended that HEIs should interact
more strongly with potential employees to determine the demand.
Many of the same comments still hold today. Apart from the general
difficulty of persuading the brightest students to pursue a career
in science, there are particular problems in trying to recruit
into the numerate disciplines. Also, the development of operational
oceanography and its projected rapid growth has raised new requirements
spanning government and industry; a scoping study for an MSc in
Operational Oceanography has recently been completed. This is
an example of where training provision is lagging behind employer
needs. IACMST is discussing with bodies such as the Institute
of Marine Engineering Science and Technology how to identify these
and similar future needs and what strategies should be implemented
to meet them; we suggest more effort should be focused on this
issue.
USE OF
MARINE SITES
OF SPECIAL
SCIENTIFIC INTEREST
(WE HAVE
ASSUMED THIS
IS BROADER
THAN FORMAL
SSIS WHICH
ARE LIMITED
TO THE
INTERTIDAL ZONE)
18. A coordinated approach to the designation
of Marine Protected Areas (MPAs) is important and this should
be based on good science supported by the necessary funding. MPAs
can also serve as a benchmark series of sites which can be compared
with other marine areas to help determine the effect of human
impacts and natural changes, and provide a resource for education,
training and research.
HOW MARINE
SCIENCE IS
BEING USED
TO ADVANCE
KNOWLEDGE OF
THE IMPACT
OF CLIMATE
CHANGE ON
THE OCEANS
19. There have been significant changes
since the last Select Committee report. Links between the marine
science community and the Met Office have grown over the past
20 years and are now considered to be very good. The Met Office
has become de facto the UK agency for Operational Oceanography
and the formation of the National Centre for Ocean Forecasting,
a joint activity of the Met Office and several NERC marine centres,
has been a very encouraging development. In order to fully exploit
this new collaborative framework the partners will need to ensure
that they commit adequate resources to the venture. A similar
model could be used to further strengthen links between the Hadley
Centre, a world leader in climate research and prediction, and
UK marine centres undertaking climate-related programmes. We note
that Defra has become the lead government department for climate
change and the Defra-led Office for Climate Change needs to give
attention to integrating the contribution of the marine science
community. As a contribution to the International Polar Year,
NERC and others have also funded two large marine consortiums
to look at the impact of changes in the Arctic climate on the
oceans (one related to gas hydrates).
20. Measurements made using the Continuous
Plankton Recorder over the last 75 years indicate that major biological
changes have taken place in the plankton in the seas around the
British Isles over the last few decades correlated with increases
in sea surface temperature. A northerly movement of warm water
plankton and a parallel retreat of cold water plankton to the
north are clearly evident and some plankton species are observed
earlier in the season. Because changes in the North Sea observed
from the mid 1980s have been so marked they are referred to as
a regime shift. A key point is that it is only the length of the
observation period that has allowed such interpretation of the
changes.
21. Although some of the increased atmospheric
CO2 due to human activities is taken up by the ocean this ameliorating
effect comes at a price: ocean acidification. Research has shown
that changes have already occurred and, if emissions of CO2 continue
to rise as predicted, it is projected that the pH of the oceans
will by 2100 have fallen to a level that has not existed in the
oceans for many millions of years. This will have important consequences
for the ecosystem. More research is needed to understand the processes
and feedbacks in order to reduce uncertainties about the future.
In particular, there is little evidence of observed pH changes
in UK coastal waters, partly due to the natural variability of
the region. Also, IACMST is of the view that a synthesis of published
studies and consideration of policy implications by a cross-sectoral
group, as done for underwater sound, would be valuable.
January 2007
| 
