Memorandum 169
Submission from the Department for Innovation,
Universities and Skills (DIUS)
INTRODUCTORY REMARKS
1. Engineering has a role across many areas
of Government work, and will be critical to the success of a number
of key challenges, such as mitigating climate change and security.
Amongst other activities, Government engineers contribute to policy,
provide capability to respond to emergencies, set standards, develop
national and European legislation and provide an "intelligent
customer" function for buying-in advice from industry.
2. Many, if not all, of the big challenges
faced by Government will demand creative, flexible, multidisciplinary
multi-agency approaches to tackle them effectively. Engineering
disciplines and engineering approaches will clearly continue to
have a crucial contribution to make. However, in determining the
best way forward, it is probably most helpful not to consider
science and engineering in traditional terms-as separate disciplines
with discrete boundaries-but rather as a continuum of knowledge
that can be used and applied with other relevant evidence to address
future challenges.
3. The Government Chief Scientific Adviser
(GCSA), supported by the Government Office for Science (GO-Science),
works closely with departments, departmental Chief Scientific
Advisers (DCSAs) and Heads of Scientific and Engineering Profession
(HoSEPs) and with independent advisory bodies, such as the Council
for Science and Technology (CST), the Royal Society and the Royal
Academy of Engineering (RAEng). The aim is to ensure that Government
policy decisions and delivery are supported by robust evidence
and stand up to the challenges of credibility, reliability and
objectivity. Consequently decisions makers can be confident that
advice also stands up to these challenges, that engineers in Government
are supported, and that the public are aware (and are in turn
confident) about the engineering advice supporting the Government's
work.
THE ROLE
AND EFFECTIVENESS
OF THE
GOVERNMENT OFFICE
FOR SCIENCE
AND THE
CHIEF SCIENTIFIC
ADVISERS IN
PROVIDING ENGINEERING
ADVICE ACROSS
GOVERNMENT AND
COMMUNICATING ISSUES
RELATING TO
ENGINEERING IN
GOVERNMENT TO
THE PUBLIC
The Government Chief Scientific Adviser and the
Government Office for Science
4. The Government Chief Scientific Adviser
(GCSA), Professor John Beddington, is responsible for advising
the Prime Minister and Government on key science, engineering
and technology issues affecting policy and delivery challenges.
This is achieved through meetings with and advice to the Prime
Minister, Secretaries of State, key Ministers, Cabinet Committees
and through participation in strategic emergency planning and
emergency response. He pays particular attention to issues that
traverse departmental boundaries, engages international policy
makers (including Devolved Administrations on non-devolved matters)
and supports long-term strategic planning processes inside departments.
The GCSA heads the Government Office for Science (GO-Science)
and works in concert with the community of Departmental Chief
Scientific Advisers (DCSAs),[1]
the Director General of Science and Research in Department for
Innovation, Universities and Skills (DIUS) and other heads of
analytical professions. He also sets standards of good practice
and quality assurance across Government and heads the Science
and Engineering Profession in Government.
5. The issues on which the GCSA and GO-Science
are involved cover many disciplines, from natural and physical
sciences through engineering and technology to mathematics. For
convenience, they are normally referred to collectively under
the umbrella expression of "science". And, as far as
advice into Government is concerned, science and engineering are
treated as an integrated subject, where the analytical approaches
from one discipline flow through to another in a continuum and
within the context of the wider evidence base. A prime example
of this is the new and increasingly important area of synthetic
biology.
6. Moreover, from a policy or delivery perspective,
even the traditionally separate engineering disciplines benefit
from being considered from an integrated perspective, with most
modern engineering challenges requiring a multidisciplinary engineering
approach. Both plastic electronics and environmentally friendly
buildings, for example, require input from many different engineering
disciplines, as well as science and social research.
7. The roles and linkages that help embed
scientific and engineering evidence into Government can be found
across a wide range of policy documents and statements (see Annex
1).
8. The Select Committee on Science and Technology
heard evidence from the former GCSA, Sir David King, to inform
its Report on Scientific Advice, Risk and Evidence Based Policy
Making and received copies of the GCSA's revised Guidelines on
Scientific Analysis in Policy Making (2005), which encompassed
engineering within the general term of "science".
Departmental Chief Scientific Advisers
9. Departmental Chief Scientific Advisers
(DCSAs) have direct access to Ministers and their own Departmental
Boards to bring to bear science and engineering advice in wider
Departmental policies, finance, and strategy. For example, a recent
intervention by the Department for Transport's (DfT's) DCSA is
proving successful with a very large rail project in making evidence
of achieving performance targets more robust and revealing previously
unknown issues.
10. DCSAs also provide professional leadership
for the science and engineering personnel in their departments
and Agencies-though in some cases the role of departmental Head
of Science and Engineering Profession (HoSEP) is performed by
another person-as well as supporting the intelligent customer
function in Departments for science and engineering advice. For
example, the Ministry of Defence's (MoD's) DCSA is a member of
the Defence Council and the Defence Board, and attends the Defence
Ministerial Committee by invitation; Chairs the Investment Approvals
Board and the Research and Development (R&D) Board and is
the UK Principal for the 1958 UK-US Mutual Defence Agreement.
11. Many issues are best tackled using a
collaborative approach to generating a robust evidence base. Departmental
Chief Scientific Advisers (DCSAs) work together under the leadership
of the GCSA to support each other and to address and provide cross-cutting
advice. The principal mechanisms for dealing with issues relating
to science, engineering and technology are the Chief Scientific
Advisers Committee (CSAC) and the Core Issues Group (CIG) of Chief
Scientific Advisers. Representation on the committees includes
both science and engineering-with four of the nine members of
CIG having a background in engineering and three being Fellows
of the Royal Academy of Engineering (FREng).[2]
Communicating issues relating to engineering in
Government to the public
12. The GCSA and DCSAs communicate in specialist
high-level fora and, as appropriate to the general public through
mass media.
13. The Freedom of Information Act presumes
openness and transparency in the publication of expert advice
by departments. One of the ways in which the GCSA tests the effectiveness
of this in relation to science and engineering is through his
rolling programme of departmental Science Reviews, which look
at (amongst other things) the publication, dissemination and debate
of findings and results.
14. A key aspect of using engineering evidence
and advice well in Government involves understanding, managing
and communicating risk effectively. This is too often over-simplified,
and scientific and engineering advisers, policy makers and those
involved in engaging the citizen and the media need to be fully
sensitive to the complexities involved, as well as ensuring that
they have the best possible evidence base. The establishment of
the Risk and Regulation Advisory Council in January 2008 was a
key step forward in that respect, with the aim of a major change
in policy-making culture in Government. The Better Regulation
Commission's report Public Risk-the Next Frontier for Better
Regulation[3]
highlights the progress made in mature analysis, discussion and
planning inside and outside Government of the management of risk,
but it rightly points out that there is much further still to
go.
15. On 18 July, DIUS launched a three-month
public consultation on developing a new Science and Society
strategy to realise the vision of a society that is excited
by science (in its broadest sense), values its importance to our
social and economic wellbeing, feels confident in its use, and
supports a well-qualified, representative workforce. The participation
of the engineering community was recognised as being essential
to this process. Working closely with the main engineering institutions,
the Royal Academy of Engineering (RAEng) is co-ordinating the
UK engineering profession's response, which will help ensure that
the resulting strategy reflects engineering appropriately and
takes full account of the needs of the UK's engineering community.
Promoting Engineering
16. Last year, the Engineering and Technology
Board and the RAEng jointly published the findings of the first
national survey of public attitudes and perceptions towards engineering
and engineers. The report revealed fundamental misconceptions
of engineering among young people that could worsen the UK's shortfall
in engineers, if it affects their future career choices.
17. To improve the perception of engineering,
a large number of campaigns, projects and initiatives exist, particularly
aimed young people. To provide coherence to these activities (some
of which are discussed below), the engineering community has agreed
to work together under the banner of the RAEng's Shape the Future
campaign to improve the promotion, delivery and information systems
that will provide better co-ordinated support for engineering
and technology in schools and colleges.
STEMNET
18. DIUS is investing £19 million (2008-11)
in STEMNET-the Science, Technology, Engineering and Mathematics
Network, which aims to ensure that more young people in the UK
make a choice to enter careers related to these subjects, and
that future generations are properly informed about the science
and technology that surrounds them.
Science and Engineering Ambassadors (SEAs)
19. An important strand of the Government's
STEM policy is the successful and expanding Science and Engineering
Ambassadors (SEAs) programme. Over 20,000 ambassadors-two thirds
of whom are engineers-are acting as role models in schools, inspiring
young people to study STEM subjects and pursue related careers.
Engagement with Engineering Development Trust GO4SET[4]
20. In 2007, the Engineering Skills Director
of MoD's Defence Equipment and Support (DE&S) sponsored 10
schools in the Bath/Bristol area as part of the South West scheme.
Engineering staff volunteered as mentors to promote careers in
science, engineering and technology to young people through participation
in a competitive project. Other staff provided interactive demonstrations
of engineering principles, sustainable development and physics
during school visits to Abbey Wood.
Engineers of the 21st Century Programme
21. Complementing the activities run under
the Shape the Future framework, the Government is involved with
various other initiatives to encourage young people. For example,
the Department for Environment, Food and Rural Affairs (Defra)
supports the Engineers of the 21st Century programme run by Forum
for the Future.[5]
The programme has been running for nine years and, within the
programme, projects have been carried out looking at Higher Education
for Engineers and the delivery of sustainable buildings and future
challenges for the built environment. Defra also supported the
establishment of the Chair of Sustainable Engineering at Cambridge.
THE USE
OF ENGINEERING
ADVICE IN
GOVERNMENT POLICY
MAKING AND
PROJECT DELIVERY,
INCLUDING EXAMPLES
OF POLICY
DECISIONS OR
PROJECT DELIVERY
THAT HAVE
BEEN OR
WILL BE
TAKEN WITH
OR WITHOUT
ENGINEERING ADVICE
22. Engineering plays a significant part
in policy and delivery across many areas of Government work, and
will be critical to the success of a number of key challenges,
such as mitigating climate change and security. A small sample
of the wide-ranging use of engineering being made by Government
is provided below.
Keeping Hostile Vehicles at Bay
23. Experts, including civil and structural
engineers and materials scientists,at the Centre for the Protection
of National Infrastructure (CPNI) are at the forefront of developing
effective (and aesthetically-sensitive) countermeasures, in the
form of protective security barrier systems, which can keep Vehicle
Borne Improvised Explosive Devices at safer distances from critical
assets.
24. Traditionally, protective security barriers,
such as bollards, planters and gates, have required deep and/or
wide structural foundations which have large cost and time implications
for excavations and the relocation of underground utilities. CPNI
has been working with industry and specialist advisors (such as
the Transport Research Laboratory and MIRA Ltd) to push the boundaries
of science and engineering to better understand the dynamic loadings
on various types of barrier during vehicle impacts, to identify
the thresholds of success/failure and to identify new materials
and alternative construction methods that can better cope with
both vehicle impact and explosion. This work has allowed systems
to be engineered with far less extensive foundations and is already
paying dividends on site-for example with the use of bollard systems
requiring only 112mm (4.5 inches) of excavation. Pioneering structural
measures are currently being sited within the iconic Whitehall
streetscape, that are not only sympathetic with the environment
but provide significant improvements to the area, such as better
use of public space and improving the visitor experience by widening
footways.
Buncefield
25. The explosion at Buncefield had major
implications for the fuel storage sector both in the UK and overseas.
Initially, following the incident, many of the Health and Safety
Executive's (HSE's) engineers were deployed to investigate and
understand what had gone wrong. Later, the Buncefield Standards
Task Group was formed consisting of representatives from HSE and
industry, with the aim of translating the lessons from Buncefield
into effective and practical guidance that industry would implement
as rapidly as possible. In the longer-term, HSE's research programmes
will deliver further intelligence to develop standards in the
industry.
Major Public Events
26. A key component of the planning process
for major public events is an understanding of the threat posed
by improvised explosive devices and the potential effects should
one be used. This advice is provided by explosion protection engineers-for
example, the Explosion Consequence Analysis or Structural Vulnerability
Assessment reports compiled by the Home Office's Scientific Development
Branch on the locations proposed for major political party conferences
and other high profile events.
European Community Whole Vehicle Type Approval
27. The European Community Whole Vehicle
Type Approval (ECWVTA) is a major project that will result in
the application of common construction standards to road vehicles.[6]
Currently construction standards only apply to cars, but this
project will extend application to lorries, vans, buses, coaches
and trailers. The activities associated with ECWVTA involve all
areas of engineering in Government. This includes technical research,
establishing performance criteria for Directives, and then implementation
in the UK of these standards (by multiple agencies). The work
has been underway for five years, and will be implemented in the
UK on 29 April 2009.
Nimrod
28. Ensuring that military aircraft are
and remain airworthy is a responsibility that can be met only
through the expert competence of the MoD's engineers. Military
aircraft are operated often at the limit of their performance
and in extreme, adverse environments. MoD engineers, working closely
with Industry engineers, define the complex design standards used
in the procurement, certify military aircraft acquired as airworthy
and sustain their usage in service through maintenance and modification.
When Nimrod XV230 was lost over Afghanistan in 2006, MoD engineers
were instrumental in determining the immediate remedial work needed
to restore airworthiness and return the aircraft to service in
support of ground operations. They worked closely with industry
and the scientific community to understand the complex engineering
issues identified by the accident and to define changes to military
airworthiness policy, regulation and guidance.
Fire Fighting
29. The development of fire core temperature
monitoring has developed from science through engineering and
should deliver an effective workable product which will improve
the safety of emergency workers when they are fighting fires.
30. In addition, the new Incident Recording
System and the Fire Service Emergency Cover for the Fire Service
are two examples of software engineering that is near completion,
leading to reduced data burdens on local authorities and an improved
evidence base for both local and national policy.
Salcey Aerial Walkway
31. The Royal Forest of Salcey is an ancient
woodland offering a rare and varied wildlife habitat. Civil engineers
in the Forestry Commission played a major part in the development
of the Salcey Forest-including constructing a unique, 300 metre
long tree top walkway to take visitors of all ages and abilities
from the forest floor to the upper canopy. The project won the
Environment category of the British Construction Industry Awards
in 2006 and, since the project's completion, visitor numbers have
increased from under 100,000 to over 250,000 a year.
Severn Bridge Cable Corrosion
32. This major suspension bridge is suffering
a significant corrosion of the supporting cables. Engineers from
the Highways Agency are working with other client authorities
who have similar problems around the world and with specialist
engineering consultants, weighing-up the evidence and risks and
interpreting design standards so that cost-effective decisions
can be taken whilst ensuring safety is not compromised. This has
led to a management strategy for the Severn Bridge with little
or no impact on road users.
Adaptation and mitigation of climate change
33. Looking over the next 10-20 years, one
of the biggest challenges facing society is climate change. Engineers
at Defra are working on adaptation measures (such as making the
Thames more flood resilient) and mitigation (developing energy
efficient technologies and increasing renewable energy) to respond
to this challenge.
Thames Estuary 2100 Flood Risk Management Strategy
34. In flood and coastal erosion risk management,
Defra engineers collaborate with the flood and coastal erosion
risk management operating authorities (the Environment Agency,
local authorities and internal drainage boards) and practitioners
and are at the forefront of policy development and the consideration
of strategic solutions. Direct involvement is mainly through review
of major projects that fall outside the delegated authority of
the operating authorities.
35. For example, the Thames Estuary 2100[7]
project is a joint initiative between the Anglian, Southern and
Thames regions of the Environment Agency, which aims to determine
the level of flood protection needed for London and the Thames
Estuary for the next 100 years. Defra engineers represented the
department alongside Environment Agency staff on the Quality Review
Panel, which provides ongoing review of the development of the
strategy, in advance of the formal submission to the department
and HM Treasury for agreement.
Development of energy efficiency technologies and
renewable energy projects
36. Currently underway is a Severn Tidal
Power Feasibility Study to assess the potential for tapping the
tidal power of the Severn Estuary, which has the second greatest
tidal range in the world. The tidal range in the Severn has the
potential to provide around 5% of the UK's electricity needs.
This represents a major opportunity for the UK to mitigate the
effects of climate change and to meet our proposed EU target to
source 15% of all our energy[8]
from renewable sources by 2020 and the Government's own Renewables
Obligation for 20% of our electricity supply to come from renewable
sources by then.[9]
It is expected that a short list of preferred proposals will be
announced by the Department for Business, Enterprise and Regulatory
Reform (BERR) at the end of this year.
Energy Research Partnership
37. The GCSA is a member of the joint public-private
Energy Research Partnership (ERP), which provides enhanced leadership
and coherence to the total UK investments in energy research and
innovation. An early initiative of the Partnership was to support
the establishment of the ETI (see below). Other work by ERP has
included developing a vision for the UK's future energy research,
development, demonstration and deployment (RDD&D) funding
landscape, as well as inputting to the development of a new Environmental
Transformation Fund, providing support for the demonstration and
early stage deployment of low carbon technologies, and assisting
the development of a new renewables energy strategy, published
by the Government for consultation in June 2008.
Energy Technologies Institute
38. The Energy Technologies Institute (ETI)
brings together some of the world's biggest energy and engineering
companies-BP, Caterpillar, EDF Energy, E.ON UK, Rolls-Royce and
Shell-in a 50:50 partnership with Government. Detailed calls for
proposals in offshore wind (in collaboration with Carbon Trust),
wave and tidal stream energy were made on 17 December 2007. ETI
announced its third technology programme-on distributed energy-in
April 2008. More programmes will follow in due course. ETI expects
to announce the outcome of its first two calls for proposals (in
the areas of Offshore Wind and Marine energy) in Autumn 2008.
The GCSA attends ETI Board meetings, and the Chairman of the Board
has a very strong background in engineering.[10]
HOW GOVERNMENT
IDENTIFIES THE
NEED FOR
ENGINEERING ADVICE
AND HOW
GOVERNMENT SOURCES
ENGINEERING ADVICE
39. A variety of routes exist whereby the
need for engineering advice is identified. These include: when
an engineering or policy solution is required to solve a particular
issue (for instance, to protect occupants in vehicles should a
crash occur), the provision of independent advice from academia
or advisory bodies (such as the Council for Science and Technology),
the result of a literature review or consultant's report, or through
futures work.
40. The route chosen will be determined
on a case-by-case basis depending on the task in hand and the
internal resources available-which vary widely between Departments.
41. If expertise does not exist in-house,
it can be bought in from external consultants, or developed internally
where long-term requirements have been identified. Where external
engineering advice is needed, this may be sourced either through
the operating agencies (such as the Health and Safety Laboratory
for HSE or the Environment Agency in the case of Defra) or by
employing specialist consultants directly.
Royal Academy of Engineering and the Engineering
Institutions
42. The RAEng is a major source of authoritative,
impartial advice for Government on issues with an engineering
dimension. As the UK's national academy for engineering, it provides
overall leadership for the UK's engineering profession-along with
the Engineering Institutions. The Academy's membership of 1,375
Fellows brings together the UK's most eminent engineers from all
disciplines.
43. The Government engages with the RAEng
and the engineering institutions on a variety of issues, such
as sustainable energy and climate change, health and wellbeing,
food security and counter-terrorism. At the invitation of the
GCSA, the RAEng has also recently become a member of the Global
Science & Innovation Forum (GSIF), a vehicle for cross-Government
exchanges of information and ideas to improve co-ordination of
UK effort in international science and innovation collaboration,
providing strategic guidance and systematic horizon scanning for
new and emerging issues.
44. As part of its independent advisory
role, the RAEng provides advice on the membership of Government
committees to help ensure that policy debate is informed by the
best engineering expertise. This includes formally nominating
one member of the Home Office's Science Advisory Committee.
45. Departments work directly with individual
engineering institutions. These arrangements are often reciprocal;
DfT, for instance, is represented on the Institution of Engineering
and Technology Sector Panel.
46. Whilst there is already much interaction
between Government and the engineering community, there is scope
to do more. The GCSA is working closely with the RAEng and the
leading engineering institutions to develop the role and accessibility
of the engineering community for Government departments and organisations
seeking engineering advice and opinion. He has initiated regular
meetings with Chief Executives of the RAEng and Engineering Institutions'
and has addressed the RAEng and engineering institutions at several
of their events, for example the RAEng Council dinner in April
2008, where he outlined his priorities and plans for GO-Science.
Scientific Advisory Committees and Councils
47. Government departments also seek specialist
expert advice through Scientific Advisory Committees and Councils.
Some of these bodies either have engineers in their formal membership
or co-opt engineering experts to meet particular issues. For example,
engineering expertise is provided within membership of Defra's
Committee on Radioactive Waste Management (which currently has
three more engineers than are formally required) and also on the
Royal Commission on Environmental Pollution. Defra's Scientific
Advisory Council includes two engineers. MoD's Defence Scientific
Advisory Council requires that eight of its members have engineering
expertise. Similarly, engineering advice is also contained within
the Home Office's Science Advisory Committee and several of its
specialist advisory committees.[11]
The Council for Science and Technology
48. The Council for Science and Technology
(CST) is the Prime Minister's top-level independent advisory body
on strategic science and technology policy issues. The 17 members
of the Council are all respected senior figures drawn from across
science, engineering and technology-six of these 17 are engineers.[12]
49. The CST's report Strategic Decision
Making for Technology Policy Making (November 2007) had a
strong engineering focus in terms of the key technology areas
where it considered that a greater focus by Government could accelerate
the real returns for the UK within a five-year timeframe. These
included carbon capture and storage, disaster mitigation technologies,
low carbon distribution networks for electricity generation, medical
devices, and a detailed case study on plastic electronics which
recommended a comprehensive value-chain analysis of the plastic
electronics sector, a strategic role for Government in bringing
the key players together to facilitate interaction between users
of the technology and the science base, and an assessment of the
training needs for the workforce.
Research Base
50. To support their work and share thinking
on developing policy with key stakeholders, departments maintain
close links with the research base through the individual Research
Councils, the TSB (see paragraph 83), and on energy issues through
the GCSA's involvement with ERP and ETI (see paragraphs 35 and
36). The GCSA has also initiated three meetings a year to bring
together the Chief Executives of the Research Councils and DCSAs
so that issues of common interest can be explored. The first meeting
was held on 7 July 2008, where the main topic on the agenda was
the cross-council Living with Environmental Change (LWEC) programme.
51. A number of departments maintain close
links with the Research Councils. The Home Office maintains close
links with the Engineering and Physical Sciences Research Council
(EPSRC) and, at strategic level their DCSA meets with EPSRC's
Chief Executive annually. Additionally, two DCSA are closely involved
with EPSRC-MoD's DCSA (Mark Welland) is a Council member and DfT
and BERR's DCSA (Brian Collins) is member of the Technical Opportunities
Panel.
52. The Research Councils are also represented
on a number of important advisory bodies and departmental Scientific
Advisory Councils and Committees. Dr Sue Ion (an EPSRC Council
member) is a member of the CST, Professor Christopher Snowden
(another EPSRC Council member) is a member of the Defence Scientific
Advisory Committee and the UK Committee for National and International
Hydrology, is chaired by Professor Alan Jenkins from the Natural
Environment Research Council (NERC).
Other sources of advice
53. The list above is not an exhaustive
one, and novel and new associations are continually being made
to solve particular problems. One example is provided by the Home
Office's recent work with the Smith Institute in order to bring
together expertise to help model and understand the process of
"entanglement" (net-like barriers in the water), which
might be used by law enforcement agencies to stop suspect vessels
relatively safely, by fouling up their propulsion units. Whilst
this was conceived as a mathematical approach, it is one that
has been used to understand better an engineering problem.
Longer term planning
54. Longer term planning of departmental
policies and resources are supported by the Horizon Scannning
Centre (HSC) within GO-Science alongside other departmental long-term
policy planning resources. Collectively, these resources identify
enablers and inhibitors in emerging areas of science and technology
that are most likely to inform future departmental policies from
only a few years hence up to 30 years or more.
55. One of the key principles of horizon
scanning is to look broadly. The HSC is part of the GO-Science
Foresight Programme. The HSC seeks and uses evidence from multiple
disciplines in all its work, and engineers have made significant
contributions to a number of HSC projects and activities. Examples
include a project on the defence implications of synthetic biological
engineering (see Annex 2); and another on Emerging Technologies
to inform the Comprehensive Spending Review 2007, which identified
and described for HM Treasury a set of eight "clusters"
of key areas of science and technology that, over the period of
approximately 2015-20, have the potential (either as enhancers
or disruptors) to: transform the delivery of public services;
challenge society; and/or affect wealth creation.
56. The Foresight Programme aims to strengthen
strategic policy making by embedding a futures approach across
Government. The Programme also runs major projects which look
in greater detail into particular scientific areas of interest
which can help decision-makers to get a better understanding of
and find new ways to tackle major societal challenges, such as
the project on Flooding and Coastal Defence. This groundbreaking
study drew heavily on leading experts from the UK's engineering
and science communities. The project report, Future Flooding,
provided a cornerstone for local and national policy, such as
Making Space for Water, the Government's 20-year strategy for
managing long-term flood risk in England. The report has also
attracted considerable international interest. For example, a
major Foresight-style "flagship" project on flood-risk
management is underway in Taihu, China, which is supported by
Chinese government departments and is being led jointly by Chinese
and UK engineers and scientists.
57. Another Foresight report "Intelligent
Infrastructure Futures" explored the scope for engineering
the future environment so that over the next 50 years efficient
and sustainable movement of people and goods can be achieved by
the introduction of common systems. Importantly the study stimulated
close working between Government and both the research and business
communities in moving towards the development of robust technology
solutions to these challenges.
58. Obesity is another key challenge for
Government, and the Foresight report, "Tackling Obesities:
future choices" demonstrated how external determinants
such as the built environment will have a crucial role to play
in combating the future threat of obesity. In particular, it is
essential that the space in which we live and work will be developed
and engineered to maximise its "walkability" and "cyclability"
and to encourage and promote other forms of physical activity
and recreation.
Succession planning
59. Over the medium- and longer-term, departments
need to consider their need for specialist advice and ensure that
the range and deployment of engineering advice they have remains
in line with their evolving business needs. A number of departments
have identified issues surrounding the age profile of their specialist
expertise and are considering how they should recruit, manage
and foster expertise to ensure their engineers continue to be
able to work effectively and with authority.
60. Some departments, such as Defra, have
created science and engineering "career homes", one
of the functions of which is to evaluate departments' capacity
and capability in relation to expertise.
61. Again, the GCSA's programme of Science
Reviews looks at departmental capacity and capability with respect
to science and engineering expertise.
THE STATUS
OF ENGINEERING
AND ENGINEERS
WITHIN THE
CIVIL SERVICE,
INCLUDING ASSESSMENTS
OF THE
EFFECTIVENESS OF
THE SCIENCE
AND ENGINEERING
FAST STREAMS,
AND THE
ROLE AND
CAREER PROSPECTS
OF SPECIALIST
ENGINEERS IN
THE CIVIL
SERVICE
The role and status of engineers with the civil
service
62. Government engineers may be leading
experts in their chosen fields working in specialist posts, or
have general engineering backgrounds that can be applied to address
more wide-ranging policy or delivery needs.
63. There are estimated to be around 18,000
scientists and engineers in the civil service-about 3.7% of the
total number of civil servants.[13]
The majority of engineering specialists are based in MoD.
64. Members of the profession play a part
in a wide variety of issues across Government, from those with
an obvious engineering angle such as better traffic management
to those that may be less obvious such as reducing Healthcare
Associated Infection. Their expertise spans the wide range of
occupational settings they work in, including mechanical, electrical,
chemical, civil and structural, highways, military, nuclear and
water engineering. Some are highly specialised, such as those
dealing with explosives, non-ionising radiation and biological
agents and nuclear propulsion.
65. Engineers contribute to a broad range
of work throughout Government departments, agencies and laboratories,
including:
- interpreting science and engineering evidence
to support policy and delivery;
- providing capability to respond to emergencies;
- providing the role of intelligent customer
capability for departments so that they can commission and use
science most effectively;
- undertaking essential work which cannot
be or is not done outside Government, for example for reasons
of national security;
- standards setting/benchmarking;
- supporting risk management and improving
public confidence;
- meeting ongoing commitments in the Government's
role as a regulator; and
- conducting research in laboratories.
66. As well as the specialist expertise
they bring, Government engineers are valued for their generic
problem-solving skills and their ability to produce practical
solutions to problems and drive delivery through project management
skills. A high proportion of engineers joining the new Science
and Engineering Community of Interest (see below) identified project
management as one of their key skill areas.
Head of Scientific and Engineering Profession
67. GO-Science supports the GCSA in his
role as Head of Scientific and Engineering Profession (HoSEP),
where he seeks to give leadership and greater visibility to the
role of scientists in support of overall Government policy. This
role complements that of Departmental HoSEPs and corresponding
heads of profession for other analytical disciplines.
68. A number of departments have reported
the need to make better and timelier use of science and engineering
in business planning and policy development, and to improve career
options for specialists. Recognising this need, the GCSA has substantially
developed and revitalised the HoSEP function since beginning his
tenure in January 2008-setting a number of key deliverables to
be achieved during his first 12-18 months in office, including:
- holding the first annual conference for
the science and engineering community to give members a chance
the share knowledge, voice their concerns and create a sense of
belonging;
- creating a Professional Skills for Government
(PSG) framework for scientists and engineers below Grade 7 and
refreshing the existing framework for Grade 7 and above (see below);
and
- exploring other measures with outside organisations
aimed at furthering people's careers and improving knowledge transfer,
such as Pairing and Fellowship schemes.
69. Whilst a few departments have a clearly
identified science and engineering community, a fundamental obstacle
to progressing the HoSEP agenda has been the lack of comprehensive
data on scientists and engineers across Government. To address
this, the GCSA has created a cross-Government community of interest
of scientists and engineers. To date, 1,316 people[14]
have joined the community of interest, of which 703 have identified
that science and/or engineering is essential to their post. Whilst
not directly comparable, these numbers equate favourably with
the other analytic professions, whose total membership is as follows:[15]
- Government Economic Service (GES)-1,472;
- Government Statistical Service (GSS)-1,382;
- Government Social Research (GSR)-around
1,000; and
- Government Operational Research Service
(GORS)-371.
Skills
70. A cross-government skills strategy agreed
by all Permanent Secretaries, Building Professional Skills
for Government, was published in April 2008. The objective
of the three-year strategy is to raise standards and enhance individual
performance, improve organisational capability and ultimately
improve the quality of public services. The GCSA and departmental
HoSEPs (along with all other Heads of Professions across Government)
have a central role in ensuring the skills strategy is a success.
71. The implementation of the skills strategy
will make a real difference to the individuals within the profession,
giving them better chances of identifying and developing the skills
that will enable them to succeed in their chosen careers.
Career prospects of specialist engineers in the
civil service
72. It is important that engineers within
the civil service are valued for their expertise and that they
are well informed about the attractive career and development
opportunities that are open to them. To a large extent this is
managed within individual departments, and a number of departments
and Government research institutes have formal arrangements to
support their staff in continuous professional development.
73. One issue which arises in creating attractive
career structures for engineers is how to retain and reward those
working as "deep specialists". Due to the needs of particular
post or engineers' focus on their area of professional expertise,
some deep specialists may not have the opportunity (or the desire)
to obtain the broader skills needed to qualify for promotion to
the Senior Civil Service. The MoD has made arrangements to reward
and recognise such specialists; the GCSA has drawn departments'
attention to this initiative through the HoSEP network, which
will continue to pursue the area of reward and recognition.
74. It is also important that professional
engineering work carried out within Government is not isolated
from that being carried out outside, whether in academia, business
or elsewhere. Departments provide encouragement and support for:
- secondments into and out of the civil service;
- support for the acquisition of relevant
qualifications; and
- the provision of time and resource to attend
conferences and work with their counterparts outside.
75. For example, to provide variety to careers
as well as giving experience required for specific posts, engineers
in MoD may undertake secondments to international posts in NATO,
UK embassies abroad, joint project offices, academic posts and
other Government departments. In addition, the new DE&S Specialist
Fellowship Scheme for engineers aims to reward and recognise the
small number of civilian experts who are required by MoD to develop
and maintain their world class specialist status.
76. Defra is in discussion with both Forum
for the Future and the EPSRC about the possibility of Engineering
Fellowships, placing either young private sector engineers or
engineering research post-docs in Defra policy teams for 3-6 month
projects.
77. Government engineering specialists are
highly competent, many holding academic qualifications underpinned
by membership of relevant professional bodies. This is a necessity
when, for example their views are subject to robust formal challenges
(eg as expert witnesses in legal proceedings or as Government
representatives in a wide range of formal and informal meetings
with experts from industry and other national and international
bodies).
78. A number of departments and Agencies
across Government, such as the Home Office and Environment Agency,
encourage their engineers to gain chartered status through the
appropriate institution. In addition, Chartered Engineer is a
requirement of certain posts in the MoD, and has been adopted
as the benchmark for professional engineering posts in DE&S.
Graduate Entry to the Civil Service
Science and Engineering Fast Stream
79. Graduates entering the civil service
through the Science and Engineering Fast Stream (SEFS) do not
enter specialist science or engineering posts. Rather, they undertake
the same policy delivery, operational delivery and corporate delivery
roles as other Fast Streamers in order to equip them for future
senior management positions, the only difference being that they
go into departments where their scientific or engineering knowledge
will be useful to them.
80. The three departments which recruit
from the SEFS (MoD, DIUS and BERR) report that entrants from the
SEFS are in high demand by managers because of the skills and
experience they bring to the departments' work, particularly on
issues relating to science, engineering and technology, but also
across the broader spectrum of their work (such as procurement
or project delivery).
81. In addition to the entrants they take
from SEFS these departments also recruit from the other parts
of the Graduate Fast Stream. Many of those recruited will have
taken science and engineering degrees but chose not to join through
the SEFS.
Other Schemes
82. Some departments and their agencies
run their own graduate recruitment schemes. MoD recruits civilian
engineers through the Defence Engineering and Science Group (DESG)
Graduate Scheme, and the Vehicle and Operator Services Agency
(VOSA) runs a Graduate Mechanical Engineer Training Scheme that
has been designed in such a way that it meets the Institution
of Mechanical Engineer's Monitored Professional Development Scheme
criteria-enabling graduates to become Chartered at the end of
it.
THE ROLE
AND EFFECTIVENESS
OF PROFESSIONAL
ENGINEERS AND
THE ENGINEERING
COMMUNITY IN
PROMOTING ENGINEERING
AND PROVIDING
ENGINEERING ADVICE
TO GOVERNMENT
AND THE
CIVIL SERVICE
83. As previously noted, there is a growing
enthusiasm on the part of the RAEng, supported by the leading
Engineering Institutions, to work more collaboratively than ever
before and with Government to help tackle the big challenges it
faces and, at the same time, better promote the UK engineering
profession. Regular meetings with the GCSA, Ministers and senior
officials help ensure that the engineering community has high-level
input to policy making in a wide range of areas.
The National Measurement System
84. The National Measurement System (NMS),
sponsored by DIUS, maintains and develops the UK's measurement
infrastructure delivering world-class measurement science and
technology and providing traceable and increasingly accurate standards
of measurement. It has a mission to enhance UK innovation and
industrial enterprise, facilitate trade and improve the quality
of life in the UK. The NMS supports innovation by enabling the
benefits of new products and processes to be measured and, specifically,
by stimulating new product development in the instrument sector.
It also raises productivity through improved process and quality
control. Measurement also underpins a wide range of public goods,
including consumer protection, forensic science, environmental
controls, medical treatment and food safety regulation, as well
as the technical standards that ensure barrier-free trade.
85. The NMS is organised into 12 programmes.
One of these "Engineering and Flow Metrology" addresses
dimensional, mass and flow measurements. Other programmes such
as "Materials and Thermal Metrology" and "Physical
Metrology" also contain a significant element of work relevant
to engineering. Since measurement plays such a fundamental part
in our lives, it is important that the accuracy of the measurement
is fit for purpose. In order to ensure that the NMS serves the
needs of users throughout the economy work programmes are guided
and prioritised by expert advisory groups. These groups are comprised
of scientists and engineers recruited from universities, industrial
companies developing or making use of the technologies concerned
or regulatory bodies, where this is appropriate.
Technology Strategy Board
86. The DIUS funded Technology Strategy
Board (TSB) is a business-led, business focused body that plays
an important leadership role across all sectors of the UK economy-with
a particular focus on stimulating innovation in those areas which
offer the greatest scope for boosting UK growth and productivity.
The Chief Executive and four members of the 12 strong TSB Governing
Board are engineers.
87. To help to focus their work TSB have
identified a number of Key Application Areas-broad fields where
technological innovation has a major role to play and which represent
major societal challenges or are associated with the challenge
of maintaining a world-leading position. A number of these have
a strong engineering component, for example: Environmental sustainability,
Energy generation & supply and, the Built environment. TSB
have also defined several Key Technology Areas which allow them
to focus initiatives and interventions on core technologies that
are critical to the UK's success. These include: High value-added
manufacturing processes; Advanced materials; Nanotechnology; and
Photonics & electrical systems-all of which have strong engineering
dimensions.
88. TSB Innovation Platforms (IPs) pull
together policy, business, Government procurement and research
perspectives and resources to generate innovative solutions. The
first two IPs, Intelligent Transport Systems & Services, and
Network Security, involved the TSB working with DfT and the Home
Office respectively to address these two important underlying
challenges facing modern society. Three more IPs have now been
announced-Low Carbon Vehicles, Assisted Living and Low Impact
Buildings-each again addressing a specific societal challenge
requiring considerable engineering input.
89. TSB also operate Knowledge Transfer
Networks-single over-arching national networks in specific fields
of technology or business application which bring together people
from businesses, universities, research, finance and technology
organisations to stimulate innovation through knowledge transfer.
Many the KTNs have a significant engineering component, for example
Aerospace & Defence, Cyber Security, and Intelligent Transport
Systems.
UK Trade & Investment
90. UK Trade & Investment (UKTI) is
the Government organisation that helps UK based companies succeed
in international markets and assists overseas companies to bring
high quality investment to the UK's economy. UKTI's Sectors Group
focuses on strategic and political Government assistance to UK
business in pursuit of overseas opportunities on those sectors
and activities where it can best add value.
91. UKTI's sector teams takes advice on
developing and implementing international trade and inward investment
marketing strategies from business advisory groups, including
the Advanced Engineering Sector Advisory Board (AdESAB), who are
also actively engaged in international marketing campaigns. Members
of the AdESAB are drawn from advanced engineering businesses and
are actively involved in the sector, providing insight into the
challenges and opportunities facing large, medium and small enterprises
and the different sub-sectors of advanced engineering.
INTERNATIONAL EXAMPLES
OF HOW
ENGINEERS AND
ENGINEERING ADVICE
ARE EMBEDDED
IN GOVERNMENT
92. As illustrated by the examples below,
countries source and manage engineering advice into government
in very different ways.
United States
93. Like the UK, engineering policy is generally
considered as part of the science policy agenda in the United
States (US). Engineers are spread far and wide within the US Government,
and are probably one of the best-represented disciplines. Many
agencies and programs in the US share engineering policymaking
and oversight responsibilities. The split is such that there is
no true primary engineering agency, nor is there an agency that
holds primacy in funding engineering research.
94. The major agencies and departments employing
and funding engineers and engineering research are the Department
of Defense, the Department of Energy, the Army Corps of Engineers,
the National Science Foundation, the National Institute of Standards
and Technology, the National Aeronautics and Space Administration,
the National Institutes of Health, the Environmental Protection
Agency, and the National Oceanic and Atmospheric Administration.
95. Beyond these agencies are several other
groups with significant say in engineering policy.
France
96. France has a network of civil service
schools-including a number of engineering schools[16]-which
provide initial training to future civil servants before and so
that they are given a post in the civil service. Training mainly
consists of practical knowledge, professional skills and work
methods necessary for the future working environment.
Germany
97. Germany has no equivalent of the GCSA.
Instead, government seeks scientific and engineering advice from
academies, research organisations, appointed advisory bodies,
and professional and trade associations. For its 2007 G8 and EU
Presidencies, the German federal government appointed a top German
climate scientist and a top energy industry representative as
special advisers.
India
98. Most key government departments/ministries
in India have an engineering arm; notably in Ministry of Transport
(Civil Engineering), Ministry of Railways, and the Ministry of
Urban and Rural Development.
99. Public sector enterprises also play
an important role in the heavy engineering sector in India. There
are 34 public sector enterprises in this area.
Japan
100. Japanese ministries manage no permanent
scientists, engineers or technologists inside their organisations,
except some for nuclear safety and regulation. Instead, expertise
is provided by companies, trade associations and national research
institutes, with whom the Japanese government has close links.
A scheme for recruiting specialists from such organisations on
a temporary fixed-term basis is used when specialist advice is
required.
101. It is understood that more detailed
information will be provided by the British Embassy in Tokyo,
ahead of the Committee's visit to Japan in October.
Spain
102. There is an autonomous organisation
within the Ministerio de Fomento (Ministry of Development) that
gives comprehensive engineering advice across a range of topics
from infrastructure, environment and planning.
September 2008
1 A significant proportion of these are engineers (see
paragraph 11). Back
2
Professor Michael Kelly, Professor Mark Welland and Professor
Sir Gordon Conway. Back
3
Public Risk-the Next Frontier for Better Regulation, Better
Regulation Commission, January 2008:
.http://archive.cabinetoffice.gov.uk/brc/upload/assets/www.brc.gov.uk/public_risk_report_070108.pdf. Back
4
An initiative involving students, engineers and companies in projects
to stimulate the interest of young people in Science, Engineering
and Technology (http://www.go4set.org.uk/). Back
5
The Engineers of the 21st Century (E21C) Programme started from
the perceived need to accelerate change in the engineering profession
to enable it to respond fully and positively to the challenge
of sustainable development
(http://www.forumforthefuture.org/node/1369). Back
6
These are standards designed to improve road safety. Back
7
Formerly Planning for Flood Risk Management in the Thames Estuary. Back
8
Electricity, heat and transport. Back
9
In 2007, 5% of the UK's electricity supply came from renewable
sources. Back
10
Sir Robert Margetts CBE FREng FIChemE is a Governor and Fellow
of Imperial College of Science, Technology & Medicine and
a Fellow of the Royal Academy of Engineering and Institution of
Chemical Engineers. Back
11
For example, there are presently three serving members on the
Home Office Scientific Advisory Committee who are engineers and
two engineers serving on the Biometrics Assurance Group. Back
12
Professors Wendy Hall and Michael Sterling and Dr Sue Ion and
Dr Phil Ruffles are all former Vice-Presidents of the Royal Academy
of Engineering-Dr Ruffles is also a past member of the Nominations
Committee and Professor Sterling a former Chair of its Membership
Committee, as well as past President of the Institution of Engineering
and Technology. Professor Michael Sterling, Dr Hermann Hauser
and Dr Raj Rajagopal are all Fellows of the Royal Academy of Engineering,
with Dr Rajagopal also being a Fellow of the Institution of Electrical
Engineers and a Fellow of the Institution of Mechanical Engineers.
Additionally, Professor Hall is a Fellow of the Institution of
Engineering and Technology and a Fellow and past President of
the British Computer Society. Back
13
There are currently 490,000 civil servants. Source: Civil Service
statistics, updated on 16 July 2008
(http://www.civilservice.gov.uk/about/statistics). Back
14
Data up to and including 21 August 2008. Back
15
Membership data provided by GES, GSR and GSS on 22 August, and
GORS on 27 August 2008. Actual numbers in post may be lower than
this due to study leave, associate membership, etc; for example,
the total number of GES in post is 1,115 compared to a total membership
of 1,472. Back
16
These include the École Polytechnique, the École
des Mines and the École des Ponts et Chaussées (Bridges
and Roads). Back
| 
