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The Government Response to the House of Lords Select
Committee on Science and Technology Third Report:
SCIENCE AND SOCIETY
Introduction
1. The Government is grateful to
the Committee for the in-depth and thorough study it has conducted
into this important issue, and commends the Committee on what
it believes will be seen as a seminal report. Many of the Committee's
comments chime with existing initiatives by the Government and
the report will be very helpful in considering the development
of these and the planning of new activities. The report has influenced
the development of policies set out in the Science and Innovation
White Paper (1) published on 26 July. The Government
also believes that the report will be helpful to the many independent
bodies, companies and individuals who work partly or wholly in
this field. The White Paper recognises it as a very important
contribution to the debate.
2. The report identifies five general
issues:
- the need to create a new culture
of dialogue between scientists and the public;
- the need to heed public values
and attitudes;
- a perceived crisis of public trust
in scientific advice to Government;
- the need for all advisory and
decision making bodies in areas involving science to adopt an
open and transparent approach to their work; and
- the need for scientists and the
media to work constructively with each other.
3. The Government agrees that these
are important areas that require further action, not just by Government
but by the science community as a whole. All of these main themes
are covered by specific recommendations in the report and the
Government's response to these recommendations is set out below.
However, it is worth noting several developments that have taken
place since the Committee's report was published that have a direct
bearing on these main themes.
4. As the Committee records, the
Office of Science and Technology (OST) is currently conducting
a review of its own activities in the field of science communication
and, along with the Wellcome Trust, the activities of the rest
of the science communication community in the United Kingdom.
This is with a view to encouraging more co-operation/co-ordination
in the field and ensuring that our efforts meet the audience's
needs. In order to inform the latter, a joint survey of public
attitudes to science has been undertaken with the Wellcome Trust
which, among other things, is designed to provide a better understanding
of what people feel about science, what the likely factors are
in the formation of their attitudes to science, and what role
they see themselves playing in the scientific process. The results
of this survey are now being worked through, and the aim is to
publish them soon. Along with other work which is looking at the
effectiveness of particular consultation techniques, the results
should provide a valuable tool to help us to develop the dialogue
between the science community and the wider public which the Committee's
report recommends.
5. The Government does, of course,
place great importance on the effective use of scientific advice
in decision making. As noted in the report, key principles to
achieve this are set out in the guidelines on 'The Use of Scientific
Advice in Policy Making' which were first published by the then
Chief Scientific Adviser (CSA), Sir Robert May, in 1997. Implementation
of the Guidelines by Departments is a high priority. A second
annual report examining progress on implementation has been completed
by the CSA. This was published on the 10 December 1999, when a
review of the Guidelines themselves was also announced. The review,
which involved two stages of public consultation, confirmed that
the basic principles set out in the Guidelines remained valid,
although a number of points of detail should change. A revised
version of the Guidelines (2) was published
alongside the Science and Innovation White Paper. Greater emphasis
is placed on key issues such as the need to involve consumer groups
and other stakeholder bodies in the development of scientific
evidence-based policy. The need to be open about the degree of
uncertainty attached to a piece of advice is also highlighted.
6. To support the revised Guidelines
the Government has decided to develop a Code of Practice which
all scientific advisory committees will follow. A first consultation
document (3) was published alongside the revised
Guidelines. The consultation document sets out several areas which
the final Code should cover including transparency, communication
with the public and an inclusive approach. The development of
the Code will take account of other expected independent reports
into government's handling of scientific advice, including that
of Lord Justice Phillips' inquiry into the handling of risks from
BSE in cattle before 1996.
7. These developments reflect our
commitment to a more open style of regulatory process.
8. This more open style is being
taken up across Government advisory bodies and Departments. For
example, on 10 April 2000 the new Human Genetics Commission (HGC)
held its first public consultation meeting on its outline work
plan. Additionally, from January 2001, all meetings of the HGC
will be held in public and minutes of sub-group meetings will
be attributable. Also, following the establishment of the Food
Standards Agency (FSA) on 1 April 2000, its Chairman announced
that the Agency would set and defend new standards of openness
and that the Agency would work in ways that will encourage people
to contribute to its thinking and allow people to see how its
decisions are being made. The Agriculture and Environment Biotechnology
Commission (AEBC), which was launched on 5 June, forms the third
part of the Government's new strategic advisory structure on biotechnology
and is expected to address the need for openness as an early priority.
Public Understanding of Science
(a) That the Office of Science
and Technology (OST) should give favourable consideration to any
reasonable bid from COPUS for direct Government support; that
COPUS, which has undergone a review, should find room on its new
Council for someone from the field of science education in schools;
and that the partners in the reformed Council should consider
seriously a new name reflecting the new mood for dialogue. (paragraph
3.16)
9. The Government agrees with the
Committee that there is a need for a central, independent, voice
with a broad membership that covers all subjects and can act,
amongst other things, as a forum. The cost of the present administration
activities of COPUS and most of the funding for the COPUS grant
scheme is provided from the Science Budget through the Royal Society.
The Government will give careful consideration to any proposals
coming from the Committee for future funding. The Government agrees
with the Committee that COPUS should give consideration to a change
of name: this should reflect the change of emphasis from public
understanding towards dialogue between scientists and society
in general.
(b) That Research Councils and
universities should strongly encourage communication training
for scientists and, in particular, training in dealing with the
media. (paragraph 3.22)
(c) That the communication training
offered to research students should be broadened to include an
awareness of the social context of their research and its applications;
and that strenuous efforts be made by universities to see that
as many students as possible take full advantage of this opportunity.
(paragraph 3.23)
10. The Government welcomes the report's
acknowledgement of the promotion of science communication skills
among students and staff by the Research Councils, as illustrated
in the helpful summary of the current arrangements listed in Table
1 in the report. This includes support of short courses, but also,
for example, encouragement of links between universities/Research
Council institutes and schools. The Government agrees that science
communication and awareness of social context should be encouraged
in the course of research training and believes that we must build
on some of the good work that is already being done. For example,
the Economic and Social Research Council's (ESRC) Postgraduate
Training Guidelines make explicit the need for postgraduates to
understand the context within which research takes place and for
integrating more and better communication of research outputs
with the research and training process itself. The Biotechnology
and Biological Sciences Research Council (BBSRC) has recently
developed a one day modular workshop on science communication
(including practical exercises on working with the media) which
will tour ten university/institute sites per year. This complements
BBSRC's specialist media training courses. Together these provide
free access to training for some 350 BBSRC scientists per year.
Both courses are open to research students. BBSRC has also run
workshops for research students on the social issues surrounding
plant biotechnology. It is also considering how to include a social
and science communication dimension within postgraduate training.
11. The OST and the Research Councils
will consider, with other interested parties, including the universities,
Department for Education and Employment (DfEE) and the Funding
Councils, how relevant training provision might best be enhanced
and its take-up increased.
(d) That grant-giving bodies should
give researchers every encouragement to share their research with
the public, and should support and reward those who do so; and
that universities should see this as a shared responsibility.
(paragraph 3.26)
(e) That the Higher Education
Funding Councils should reward the work of those who have successfully
brought the results of their research to a wider audience. (paragraph
3.32)
12. The Government is committed to
the effective dissemination of research, and agrees with the Committee
that employers and grant-giving bodies have a joint responsibility
to encourage researchers to share their research with the public.
It is important for this to be supported at the highest level
in universities and research laboratories, and seen to be both
a personal responsibility and also one that can be enhanced by
wider programmes supported by the institution. One benefit of
such programmes is that closer links are established with the
local community.
13. The Research Councils have a
range of initiatives in this area. For example, BBSRC requires
all its grantholders to undertake activities in support of promoting
awareness, appreciation, and understanding of science. The Particle
Physics and Astronomy Research Council (PPARC) encourages grant-holders
to spend up to 1% of grant funds on outreach work. PPARC also
provides free access to media training for researchers with 'a
story to tell'. The terms of award for grants by the Medical Research
Council (MRC) and the Natural Environment Research Council (NERC)
make explicit reference to their expectations that university
researchers will contribute to science communication and that
there will be some assessment of their contribution when the grant
is reviewed or through Output and Performance Measures. The same
applies to MRC units and institutes, where contribution to science
communication is also one of the criteria for personal salary
advancement for scientists. The Engineering and Physical Sciences
Research Council (EPSRC) encourages grantholders to share their
research through, in particular, its 'Partnerships for Public
Understanding Awards'. ESRC attempts to capture the engagement
of users and stakeholders at every step of the research process.
All project grant applicants are required to specify a dissemination
strategy and identify the potential user audiences for their research.
Applications are assessed against this criteria. Up to 5% of the
grant may be spent on outreach and communication intended for
non-academic audiences.
14. The Director-General of Research
Councils (DGRC) and the Chief Executives of the Councils are reviewing
Councils' activities in these areas to build on best practice
across the Councils.
15. The Funding Councils provide
a block grant to institutions which is used at their discretion.
The assessment process that determines the block grant is increasingly
recognised to include all research outputs, not just publications
that have appeared in peer reviewed journals but those which impact
more widely on society and the economy. This has supported a more
wide-ranging dissemination process. This has been aided by the
funding stream that directly supports interaction with business
and the community - the Higher Education Reach-Out to Business
and the Community (HEROBC) fund, through the collaborative efforts
it facilitates.
16. Thus the Funding Councils already
operate powerful drivers to disseminate research and, increasingly,
the research community is engaged in dissemination activities
outside of academia. In addition, as part of the Higher Education
Funding Council for England's ongoing Review of Research it is
considering further how to ensure that researchers know that all
forms of research, however disseminated, are encouraged to be
submitted to the Research Assessment Exercise and that impact
on the economy and society more generally may be recognised as
an indicator of quality - so that good science communication is
promoted. The link to the block grant ensures that this activity
is embedded within in the basic culture of institutions. Given
these circumstances the Government does not believe that a separate
funding stream is necessary.
(f) That the OST and the Department
of Culture, Media and Sport should set up a similar structure
to the Scottish Science Trust to support science centres in England
and Wales. (paragraph 3.43)
17. The Government is considering
what support it can provide to science centres within England,
Wales and Northern Ireland. It would seem desirable for the centres
to co-operate, co-ordinate, and share best practice in order to
strengthen their long term viability. The Government agrees that
the experience of the Scottish Science Trust, which is helping
the centres through a 'bottom up' approach, provides a useful
pointer on how the centres might work together.
(g) That the OST should establish
liaison linking the science museums and science centres with the
Research Councils and the Foresight team, so that each can help
the other to identify and respond to emerging issues in science.
(paragraph 3.46)
18. The Government agrees that such
links are important. There is already good communication between
the Foresight programme, the Research Councils and science museums
and centres. The Research Councils take Foresight priorities into
account as an input in developing their programmes and themselves
play an important role in the Foresight programme. Science museums
and centres have an emerging role in this process. Already:
- PPARC is helping the science centres
and museums to feature science stories in its own area, to encourage
links with CERN and the European Space Agency (ESA), and to
link with local university researchers. It will also facilitate
a meeting of all centres, museums and planetariums covering
astronomy to enable best practice and resources to be shared.
Further, it is funding a major travelling exhibition on particle
physics and CERN to visit science centres. It has also developed
strong working links with the forthcoming National Space Science
Centre at Leicester;
- BBSRC has good links with Techniquest
where it sponsors bursaries on the MSc course in Science Communication,
and has also developed exhibitions in collaboration with the
Royal Botanic Garden Edinburgh and with the Natural History
Museum;
- NERC has worked closely with
museums in creating exhibits on key subjects (for example, Earth
Science Galleries at the Natural History Museum, Autosub in
the new Wellcome Wing at the Science Museum and Our Dynamic
Earth in Edinburgh);
- EPSRC is also working closely
with the Science Museum and is now contributing over £200k a
year toward the 'Antenna' science news exhibit in the museum's
Wellcome Wing. Further, it will help the museum with content
on engineering and the physical sciences. The MRC has also worked
with the Science Museum.
19. The Foresight Programme collaborated
with the Science Museum on the content of the Wellcome Wing and
the Museum is drawing on Foresight material for the interactive
games and exhibits in its 'In Future' area. Foresight and the
museum are also considering how to link together parallel activities
aimed at attracting and engaging young people through Web-based
interactive multi-media technologies.
20. The Government believes that
it will be important for all science centres to work closely with
those delivering science, engineering and technology (SET) into
schools, especially the SETPoints, given that they share target
audiences and motivation. It believes that there are encouraging
signs on this front, for example, science and educational managers
from @Bristol met with all Research Councils in May 2000 to explore
ways of working together.
21. It is also worth noting that
a number of the science centres are applying for funding or acting
as lead partners in funding applications to Research Councils.
Also that the Wellcome Trust will be hosting a seminar at the
Museums Association Conference in October about the relationship
between science centres and science museums.
22. As indicated in the answer to
recommendation (f), the Scottish Science Trust might provide a
useful pointer as to how the science centres might work together
and thus be able to interface with the rest of the science community
on a regular basis.
(h) That the OST should give appropriate
institutions incentives to collaborate to create and maintain
reliable and independent "portal" Web sites, providing links to
science information Web sites of high quality and open to public
access. (paragraph 3.49)
23. The Government recognises that
the provision of comprehensive, reliable, and independent scientific
information over the Internet will become increasingly important
in the coming years, particularly if the Government reaches its
goal of universal Internet access in the UK. It has therefore
already channelled resources, both directly and indirectly into
the development of the kind of "portal" websites envisaged by
the Committee, such as the web-based version of OST's own Science
Connections publication. The Research Councils have developed
their own "portal" website, which allows access to the Research
Councils' individual sites. There is undoubtedly potential for
this type of co-operation between other information providers.
OST will be exploring with other major players what more can be
done. Ideas such as 'kitemarking' are worthy of further consideration.
The Government believes that such portal sites should be more
than just an index of sites. They should be updated on a regular
basis to enable them to have 'hot news' and/or a notice board
section that point to, for example, new consultations.
(i) That the Government should
continue to earmark funds for special initiatives to improve women's
understanding of science. (paragraph 3.57)
24. The Government funds a range
of activities to promote a better appreciation of science and
engineering and its contribution to improving the lives of both
men and women. It will continue to do so. However, it agrees with
the Committee that it is important to consider special initiatives
for women.
25. Although the introduction of
the National Curriculum means that more girls are receiving a
good education in science, some specific initiatives are nevertheless
still required. The purpose being to increase the numbers going
forward to higher education courses in engineering and the physical
sciences. Furthermore, as the Committee observes, previous generations
of women have had fewer opportunities for scientific training
and yet they play a vital role in raising and educating children
and in making lifestyle decisions.
26. The OST Promoting SET for Women
Unit works to promote science and its role in society, and to
increase the participation, promotion and retention of women in
science, engineering and technology. The Unit co-ordinates and
facilitates a wide range of initiatives including funding regional
events. The unit works with organisations across the country,
including: The Women's Institute (WI); the National Council for
Women; the Women in Science and Engineering campaign; and professional
bodies such as the Women's Engineering Society and the Association
of Women in Science and Engineering. The Unit is also funding
'PortiaWeb.org' - a web portal to get more women into SET. This
site, designed by women, will include areas for discussion on
science in everyday life, science in plain English and pointers
to areas for more detailed information.
27. The Government believes that
greater participation by women in SET requires that women play
an increasing role in advisory and expert bodies. The target set
in the 1994 report, the Rising Tide, of 25% representation by
women on SET related councils and boards was met one year early
in 1999. The DTI is still actively encouraging the involvement
in policy decision making by women and is working to meet the
EU target of 40% membership of women on the EU Framework programme
expert and advisory bodies. Such representation helps to promote
a positive image of science and engineering to young people.
Communicating uncertainty and risk
(j) That the Government should
press for guidelines on scientific advice, along the lines of
the OST's Guidelines, to be adopted at EU Commission level. (paragraph
4.9)
28. In line with the approach outlined
in the Science and Innovation White Paper on scientific decision
making in international bodies, the Government has been actively
working to promote the adoption by the European Commission of
the broad principles that underlie the CSA Guidelines. The Commission
is currently exploring proposals to create a common system of
scientific and technical reference for supporting policy making,
as part of a common European Research Area (ERA). Member States
and the Government welcome the Commission's initiative in opening
the debate on this important topic. The Government will continue
to play a full part in discussions. A recent Council (Research)
Resolution on ERA welcomed the Commission's intention to take
forward work on 'science reference for policy decisions'. The
Heads of Government, in turn, welcomed this Resolution at the
Feira European Council in June.
(k) That the Interdepartmental
Liaison Group on Risk Assessment (ILGRA) should look into current
research on how risk information is received by the public. (paragraph
4.18)
29. The Government recognises the
importance of research into how risk information is received by
the public. Much information has been generated from research
in this field. Some of this has already been incorporated into
guidance on risk communication. Two examples are ILGRA's 'Risk
Communication - a Guide to Regulatory Practice', which was distributed
across Departments, and the Department of Health's 'Communicating
about Risks to Public Health - Pointers to Good Practice'. Both
are available on the Internet. These documents summarise important
research findings and their implications, and highlight 'fright
factors' and 'media triggers'. In addition, the Civil Service
College course 'Communicating about Risks' which was originally
developed at the Department of Health, aims to increase awareness
of factors affecting public perceptions/reactions to risk.
30. Through ILGRA's subgroup on
risk communication, the Government is able to keep a watching
brief on the work being done by individual Departments in this
area and to keep abreast of ongoing research by Departments. For
example:
- A review of literature concerned
with risk perception and risk communication was undertaken on
behalf of the HSE by the Health and Safety Laboratory. The review
was published in 1999 and the findings were discussed at an
inter-departmental workshop;
- A number of Departments are funding
research on Social Amplification of Risk which looks at the
role of cultural institutions such as the media in forming public
perceptions of risk;
- The DoH is funding two projects:
One is investigating what people think about health risks and
how health risk messages could be improved. The other is looking
at risk literacy and the general public. This will also include
a literature review of existing work in this area;
- A programme of research is being
undertaken by the HSE which looks at how to improve the impact
of messages about organisational risks and risk controls;
- The Interdepartmental Group on
Health Risks from Chemicals (IGHRC), a subgroup of ILGRA, is
developing improved approaches to the use and communication
of uncertainty factors in chemical risk assessment.
31. The ESRC's support for research
into risk should also be noted. This extends to a new £4.5m Centre
for the Analysis of Risk and Regulation, which focuses on the
interaction of regulatory systems and risk management systems
from pollution to financial crises. The research will address
risk production and risk perception, the techniques of regulation
and risk management, the intended and unintended effects of risk
regulation, corporate governance and regulatory policy.
32. Despite these initiatives, the
Government recognises that there is still much to learn. Consideration
is being given as to where further research might usefully be
undertaken, including how the research mentioned above can be
extended to inform the areas covered by other Departments. Information
from such research can then be used to update guidance and training
programmes on risk communication for policy makers.
Engaging the public
(l) That direct dialogue with
the public should move from being an optional add-on to science-based
policy-making and to the activities of research organisations
and learned institutions, and should become a normal and integral
part of the process. (paragraph 5.48)
33. The Government agrees with the
Committee that there is a need to engage the public more fully
in debates about the possible implications of the use of technology.
It has been the Government's general policy to bring government
closer to the citizen, for example 'Quangos: Opening the Doors'
(4) states that all Non Departmental Public
Bodies (NDPBs) should aim to consult their users on a wide range
of issues using a variety of means. The Government agrees that
understanding public values, and increased transparency, are essential
for good decision making, and that this will entail more substantial
influence and effective inputs from diverse groups and at various
stages in the policy making process.
34. The Government response to the
Royal Commission on Environmental Pollution's 'Report on Setting
Environmental Standards' (5) discusses in some
detail the factors involved in selecting consultation and participation
methods. As more experience is gained throughout the UK's decision-making
institutions - and further good practice is identified - the benefits
of a more open dialogue should start to be evident. The Government
hopes that this will establish a virtuous cycle, which gradually
makes public dialogue a normal and integral part of the many processes.
35. The Government welcomes the Committee's
research into comparative levels of "institutionalised dialogue
with the public" in the US and that in the UK and the rest of
the European Union. The Committee has also usefully set out the
many methods which may be employed to facilitate debate. The Government
has piloted some of these methods in recent years and expects
to pilot more. In particular the two new biotechnology commissions
(the HGC and the AEBC) will, along with the FSA, have a specific
remit to involve and consult stakeholders and the public. It is
also worth noting that the results of the Government's 'Public
Consultation on Public Attitudes to Developments in the Biological
Sciences and their Oversight' fed directly into the review which
led to the establishment of the two new biotechnology commissions.
Research on evaluating public participation methods such as focus
groups and citizen's panels is currently being funded by the DoH
and the HSE.
36. However, consultation, in whatever
form, has costs, both in time and financial terms. Expenditure
on consultation and public debate should be proportionate to the
issue concerned. The developing body of good practice, both in
the UK and in Europe (for example, through the TRUSTNET project)
will help determine the appropriate level, timing and mechanism
of public dialogue for varying types of issues. As discussed further
at (o) below, the Cabinet Office is currently consulting on a
'Code of Practice on Written Consultation'.
37. The Government believes that
the Internet is likely to provide a powerful mechanism for facilitating
dialogue between scientific bodies and the public. It could be
used more widely to advertise the appearance of new information
or consultation documents via a 'hot news' section of a high profile
portal web site. In very important cases conventional advertising
in the media could be used to draw attention to the consultation
web address. As mentioned in (o) below, a central register of
written consultations will initially be based on the 10 Downing
Street web site.
38. The Director General of Research
Councils is discussing with Chairmen and Chief executives of the
Councils how best to increase user and general public involvement
in their business. Positive steps have already been taken, for
example, the BBSRC has set up an advisory group whose membership
includes members of the public and the MRC has set up a Consumer
Liaison Group whose membership is comprised wholly of members
of the public.
(m) That, for OST within Government
and for COPUS giving a lead in the scientific community, dialogue
with the public in one form or another should become a major strand
of their activities. (paragraph 5.52)
39. The Government agrees with the
Committee that it is essential to establish dialogue with the
public in a number of areas. This was one of the main driving
forces behind the OST/Wellcome Trust sponsored public attitudes
to science survey. A major aim was to gain a better understanding
not only of what people's attitudes were, but also how they want
to be involved in the scientific process. The results from the
survey, taken along with research being funded by the DoH and
the HSE on evaluating public participation methods such as focus
groups and citizen's panels, and the guidance being developed
by the Cabinet Office, will help all of those involved in engaging
the public to learn from past experience and choose the right
methods for the intended audience.
40. It is ultimately for Government
Departments, or the relevant public body, to draw on available
research and decide what form of engagement meets its own and
the public's needs. OST's role is to give guidance, as in the
CSA's Guidelines, and the proposed Code of Practice for scientific
advisory committees. OST may also takes the lead, as it did on
'The Public Consultation on Developments in the Biosciences and
their Oversight', where scientific issues cut across the responsibilities
of several Departments. OST will also continue to encourage others
to build on examples of good practice. For example, the Research
Councils already engage in a range of activities which offer the
opportunity for dialogue with audiences. An excellent example
is the Millennium Science Conference for the WI, 'Air Land and
Water: Keeping it clean' in February 2000, sponsored by NERC and
EPSRC. This offered the chance for discussion and debate, the
results of which delegates took back to their regions to cascade
to the wider WI membership. Feedback from the event was positive.
41. COPUS will almost certainly have
an important role to play in encouraging Government and independent
bodies to enhance their dialogue activities, and to encourage
them to reach members of the general public who are not normally
engaged by such activities.
(n) That government departments
should collate experience of new techniques of public dialogue,
and draw up a code of practice designed both to maximise their
effectiveness and preserve their integrity. This exercise should
be led by the OST. The code should have the same status as the
Chief Scientific Adviser's Guidelines on scientific advice, and
might even form part of them. (paragraph 5.53)
42. As announced in 'Quangos: Opening
the Doors', the Cabinet Office will have the primary responsibility
for producing general guidance to help public bodies effectively
undertake consultation exercises. Indeed they are already engaged
in the process of producing guidance of which more details are
given below in response to recommendation (o). Such guidance draws
on the experience of Departments in consultation exercises. As
this will effectively be a 'Code of Practice', the Government
does not believe that a new code of practice for consultation
on scientific issues is necessary, though efforts to identify
and share best practice will continue.
43. Cabinet Office guidance is authoritative
across Government Departments and therefore of a comparable status
to the CSA's Guidelines. The Guidelines document is not a unique
source of advice. What is important is that it clearly signposts
other relevant guidance. The revised version of the CSA's Guidelines
on scientific advice makes a clear reference to the Cabinet Office
Code of Practice on Written Consultation.
44. The Government believes that
issues specific to the public debate in the sciences will, at
least for the time being, best be promulgated by informal sharing
of best practice, which will allow Departments to collate their
experiences. The Cabinet Office will be setting up an Internet-based
best practice forum later in 2000. Other mechanisms already exist
to share good practice through Cabinet Office, OST and ILGRA networks.
45. The House of Commons Select Committee
on Public Administration has been conducting an investigation
into 'Innovations in Public Participation'. Its report is expected
later in the year. It, and the Government's response, will offer
an opportunity to clarify thinking on the best use of new techniques
of public dialogue.
(o) That any public dialogue should
be conducted in good faith, and that its aims and in particular
its role in the policy process should be clear from the start.
Those organising public dialogue should see to it that single-issue
groups do not monopolise proceedings. The organisers of such events
should make every effort to encourage the media to cover the event
and to report the outcomes. (paragraphs 5.51, 54-55)
46. The Government agrees with the
Committee's recommendation. The Cabinet Office has recently consulted
on a 'Code of Practice on Written Consultation', which sets out
guidance on the use of this method for engaging the public. It
reminds public bodies, however, that other forms of consultation
may be useful, particularly at early stages of the debate. Furthermore,
the draft Code sets out criteria which are more generally applicable
for good consultation:
"1. Consultation should be built
into the planning process for a policy or service from the start,
so that it has the best prospect of improving the proposals
concerned, and so that sufficient time is left for it at each
stage;
2. It should be clear who is
being consulted, about what questions, in what timescale and
for what purpose;
6. Responses should be carefully
and open mindedly analysed, and the results made widely available,
with an account of the views expressed, and reasons for decisions
finally taken."
47. The Code will be complemented
by a central register of written consultations, initially to be
based on the 10 Downing Street web site. This will give access
to all key written consultations being pursued by Government departments
and agencies and, by broadening access, should help to ensure
that narrow sectional interests do not dominate responses.
48. The Government thus agrees that,
particularly where debates are more interactive, there is a need
for careful moderation to ensure that the voices of all participants
are heard and not just those who stress their point most strongly.
The Government would also agree that the media should be encouraged
to cover such debates in order to achieve the maximum benefit
from them. It is expected that both of these aspects will be covered
during the promulgation of best practice discussed in the response
to recommendation (n).
(p) That the Government should
give a lead at EU and international level in fostering public
dialogue on issues involving science. (paragraphs 5.56, 60)
49. The Government is working to
ensure that the principles behind good scientific decision making
are followed in international bodies.
50. The Minister for Science and
Innovation and the CSA regularly refer in meetings with their
counterparts from other countries to the importance of increasing
open and informed public debate about the role of science in society.
The CSA's 1997 guidelines on 'The Use of Scientific Advice in
Policy Making', which emphasised the need for wide consultation
and open presentation of policy, have been widely acknowledged
internationally and used as a model by a number of other countries.
The UK has actively contributed to the development of thinking
in the European Commission on science and has emphasised the importance
of openness and dialogue.
51. On 2 December 1999 the EU Research
Council invited the European Commission to consider ways of giving
a higher profile to European Science Week funded under the Framework
Programme. The Commission has subsequently established an ad hoc
group of officials to consider how this could be achieved. The
UK Government, in conjunction with the British Association, is
playing a leading role in this group and is currently in discussions
with the Commission about the possibility of establishing a "European
Federation of Science Festivals". This could act as a forum for
the exchange of best practice in science communication drawn from
the experiences of those EU countries which have National Science
Festivals. The forum could also be used to examine, on a pan European
basis, the findings and recommendations contained in 'Science
and Society' and the results of the recent OST/Wellcome Trust
survey on the UK public's attitudes to science.
52. In response to the European Commission's
Communication 'Towards a European Research Area', the EU Research
Council adopted a Resolution at its meeting on 15 June 2000 which
called on Member States and the Commission to, amongst other things:
Promote closer co-operation between national and European research
organisations; consider the promotion of Research and Technological
Development culture to European citizens and the public understanding
of science; and to bring national and European Science Weeks closer
together.
53. One outcome of UNESCO's World
Science Conference held in Budapest last year was recognition
of the need to improve science communication internationally.
The Government took the lead at Budapest by offering to sponsor
an international workshop on how to improve science communication.
This was held in London from 3 to 5 July 2000. Participants included
science communicators and policy makers from across the developed
and developing world, as well as UNESCO. The workshop invited
UNESCO to pursue with others an International Science Communication
Initiative to help build international capacity, particularly
in developing countries, through professional development, information
sharing and networking and research.
54. The Government is now considering
participation in this as well as other initiatives which respond
to the need for fostering public dialogue, particularly on scientific
issues relevant to the reduction of poverty in developing countries
(q) That advisory and decision-making
bodies in areas involving science should adopt a presumption of
openness. This presumption should apply, in particular, to the
reasons on which regulatory decisions are made, including all
scientific information and advice. The presumption should be overridden
only where this can clearly be justified in terms of, for example,
genuine commercial confidentiality. (paragraph 5.70)
(r) That such bodies should open
as many of their proceedings as possible to the public. (paragraph
5.71)
55. As indicated in the introduction,
the Government is committed to a presumption of openness and transparency
in the regulatory process.
(s) That the new Food Standards
Agency should cultivate a culture of direct, open and timely dialogue
with the public. (paragraph 5.73)
56. The Chairman of the FSA announced
on 3 April that the Agency will set and defend new standards for
openness. The Agency consults wherever possible with consumers
and other stakeholders and encourages people to contribute to
its thinking. It is also required to make publicly available the
information on which its decisions are based.
57. The Board of the FSA holds its
meetings in public, openly debating and deciding key policy issues.
The Board has also hosted two open fora for the public in order
to listen to their concerns and seek suggestions as to how the
Agency might respond to them. Such fora are one of the many means
that the Agency uses to consult and communicate with the public
on the Agency's priorities, and also on the way in which it works.
Separately, the Agency has consulted publicly on a draft Statement
of General Objectives and Practices, which sets the general framework
for how it will operate. It is currently consulting on more detailed
documents flowing from this - for example a Code of Practice on
Openness, and has launched a consultation on involvement of consumers
in policy making. The Agency's aim is to reach out to those who
might not normally have the chance to make their views heard.
58. The Agency will carry out and
publish annual consumer surveys of attitudes towards food issues
and towards the FSA itself. This will be another way in which
the Agency will seek people's views. It will also help to measure
its success. A preliminary survey was published June 2000.
59. The FSA website, www.foodstandards.gov.uk,
will provide an opportunity for people to learn about the agency
and also to provide feedback.
(t) That the scientific merit
of particular research grant proposals should continue to be assessed
by peer review; but that the Research Councils should do more
to involve stakeholders and the public in the wider task of setting
the priorities against which particular grants are made, and should
seek greater publicity for the process. We suggest that they might
seek the considered involvement of members of Parliament and local
authorities, and of other people active in their communities;
and that they might hold occasional open forum meetings in different
locations. (paragraph 5.81)
60. The Government already engages
stakeholders in consultation exercises which provide input to
the recommendations for the broad landscape for future scientific
priorities. For example, the Government's Foresight programme
is a mechanism for consulting widely with business, the science
base, and the voluntary sector. The aim is to identify future
developments in science, technology and markets and what can be
done now to exploit these opportunities for future prosperity
and enhanced quality of life.
61. The Research Councils determine
their priorities against this broad landscape of recommendations.
As the Committee's report notes, to achieve this, the Research
Councils engage in a variety of more focussed consultations with
stakeholders. Examples of these are detailed below. However, it
is for the Research Councils to set the priorities against which
particular grants are made in line with the Haldane Principles.
- PPARC includes representatives
from industry, education and science communication on its programme
advisory committees and is currently expanding its web site.
It views this as an effective means for dialogue with stakeholders,
customers and the public;
- EPSRC also has a User Panel which
(together with a Technical Opportunities Panel) provides annual
advice on the distribution of resources between the Council's
programmes;
- The MRC regularly consults patient
groups on design of particular clinical trials. It is also undertaking
a new series of briefings for local opinion-formers and expects
to increase the number and frequency of briefings for all-party
disease groups in Westminster, and special briefings for Parliamentarians
on topics of interest;
- The main part of the triennial
review of the ESRC's Thematic Priorities is an extensive national
consultation which includes users from business, Government
and the voluntary sector. The Thematic Priorities are modified
on the basis of the outcome of the consultation and are circulated
widely;
- The BBSRC already has a range
of user community and other non-academic representation on network
groups that support and advise its Research Committee planning.
It is moving to increase the level of consultation, for example
through the launch of a joint BBSRC and NERC funding initiative
on gene flow in plants and micro-organisms. The Councils ran
a consultation web site in which interested parties (including
environmental campaign groups, conservationists and others)
were invited to comment on the proposed framework of research
and to submit ideas for specific pieces of research that they
would like to see included. Views recorded at the web site were
fed back to the Scientific Steering Committee. BBSRC and NERC
are considering developing such consultation processes as a
regular feature of their funding initiatives;
- NERC will use its Autumn 2000
move to a single Science and Technology Board to open up opportunities
for wider dialogue on policy and funding issues.
62. A number of the Research Councils
have been involved in an initiative which provides a very good
example of targeted user engagement in the research process -
the Local Authority Research Councils Initiative (LARCI) established
in 1998. Local government representatives (LGA, SOLACE, IDEA,
COSLA) have come together with Research Councils to aid dissemination
of research relevant in the sector, to respond to research needs
identified by the sector and to encourage collaboration through
research.
(u) That the exemption, from the
disclosure requirements of the Freedom of Information Bill currently
before Parliament, for information intended for publication, be
scrutinised to ensure that it is sufficient to protect scientists
from being required to reveal the conclusions of unpublished research
in advance of peer review. (paragraph 5.81)
63. In the course of consultation
on the Freedom of Information White Paper and Bill the OST scrutinised
both documents. This was in consultation with the Research Councils,
the Home Office and the DTI Open Government Unit, in order to
assess the implications of any future Freedom of Information Act
to scientific research.
64. Particular consideration was
given to the possible disclosure of scientific information that
might compromise good practice in research undertaken by public
bodies. Specific cases were made concerning the access to information
that might hamper scientific research, violate commercial confidentiality
or compromise the anonymity of scientific researchers.
65. It is worth highlighting that
the requirements of the Freedom of Information regime will only
apply to scientific research held by public bodies defined by
the Bill as within its scope. Bodies outside of the scope of the
Bill will not themselves be required to release any information.
66. From a careful examination of
the Bill it is OST's view that the exemption for information intended
for publication is generally sufficient to protect public bodies
within the scope of the Freedom of Information regime from being
required to reveal the conclusions of unpublished research in
advance of peer review. This is the case whether the body to whom
the request was made conducted the research or the results were
supplied to that body by a third party. However, for the exemption
to apply it must have been the intention to publish the information
at some future date at the time a request for the information
was made. Research information held by a public body in scope
where there is no intention to publish it cannot be withheld under
the terms of this exemption. However, depending on the precise
circumstances relating to the information requested, other exemptions
may apply, such as those covering national security considerations,
information supplied in confidence, or the personal safety of
researchers.
67. Subject to any amendments arising
as a result of the Bill's passage through Parliament it will be
necessary to carry out a further assessment of the implications
for scientific research.
(v) That, when the public interest
requires that the public should receive, through the press, an
early indication of the nature of a line of research, in suitably
guarded terms, the researchers involved should receive help from
their university press office or learned society. (paragraph 5.82)
68. The Government agrees with the
Committee that in those cases where some early announcement is
required then it is important to seek advice from both professional
press officers from within the university itself and/or the Research
Councils, and scientific peers. It is however very important to
have determined the reason why such early release of information
is required, in advance of the publication of a peer reviewed
article. Such considerations also apply to disclosure at a conference.
Science education in schools
(w) That time for science in primary
school should not be squeezed any further by the drive for literacy
and numeracy. (paragraph 6.11)
69. Primary science teaching has
improved considerably in the past 3 years as the results of tests
for 11 year olds demonstrate. This is despite the fact that very
few primary teachers are science specialists. Young children are
intrigued and excited by primary science.
70. Further support for teachers
will be available from the Schemes of Work that have been published
by the Qualifications and Curriculum Authority (QCA) for Key Stages
1, 2 and 3. The Schemes of Work encourage teachers to make links
between topics in ways which will help pupils to engage with the
bigger picture. They are accompanied by teachers' guides which
identify opportunities for developing thinking skills, literacy
and numeracy in other subjects, and encourage a range of teaching
and learning activities. All teachers will find ideas with which
to work, but use of the Schemes of Work is not compulsory. This
allows teachers the flexibility to use part of the Scheme if they
wish, and rely on their own ideas and experience if they have
found them to be effective.
71. The Government is also working
to improve support for science in primary and secondary schools.
Like the Committee, the Government also welcomes the work of the
Council for Science and Technology on this area, published in
March 2000 in their report "Science Teachers". The main focus
of the Government's work will be on offering support and professional
development opportunities for teachers at Key Stage 3, with the
objective of building on improved performance in primary schools.
The Government is planning to hold a consultative conference to
gain the views of science teachers about the Council's report.
The conference will consider the Council's recommendations in
the context of the new framework and measures it is currently
developing to support their continuous professional development
and work. In addition, the Secretary of State for Education and
Employment has asked the QCA to carry out further work on the
National Curriculum to examine, and make recommendations on, the
relevance and suitability of the science curriculum in the 21st
century.
72. The Government has also announced
that there will be a Science Year from September 2001, with the
objective of raising the profile of science in schools and among
the general public.
(x) That those involved in developing
science teaching materials should find acceptable forms of live
demonstration, in the face of increasing cost and health-and-safety
regulation. (paragraph 6.14)
73. The Government agrees that those
developing science teaching materials should find acceptable forms
of live demonstration. However, although it has been suggested
that health and safety regulations preclude interesting science
demonstrations, HSE has confirmed with the Royal Society of Chemistry
and a number of science teachers that this is not so. The regulations
do, however, require teachers and their managers to assess and
minimise any risks to health and safety that may result from practical
work.
74. The revised National Curriculum
for England places fresh emphasis on scientific enquiry, which
includes practical activities. The Schemes of Work published by
the QCA offer a range of suggested activities, along with specific,
brief guidance on health and safety issues related to specific
activities.
75. The Government firmly believes
in the importance both of activities being carried out in safe
circumstances, and of ensuring that children learn and improve
their understanding of risk and risk management. In December 1999,
HSE and the QCA produced joint guidance for teachers and Local
Education Authorities on the new requirement for teaching pupils
about hazards, risks and risk control. Well conducted practical
demonstrations can be used to teach pupils how to recognise hazards,
assess consequent risks and take steps to control these.
76. In order to encourage practical
science in safe surroundings, the Government recently made available
£60 million for the refurbishment of school science laboratories.
Science and the media
(y) That the Press Complaints
Commission (PCC) should adopt and promulgate the Royal Society's
new guidelines for editors. In doing so, the PCC should make it
clear that they are aimed not just at specialist science correspondents,
but at all journalists who find themselves dealing with science,
including those on the news desk. (paragraph 7.31)
77. The Government also supports
the Royal Society's new guidelines for editors and for scientists
working with the media and commends them to the media and the
science communities.
(z) That the Government should
do whatever they can to ensure that EU support is forthcoming
for AlphaGalileo, the new Internet-based science resource for
journalists. (paragraph 7.45)
78. The Government supports the objectives
of the AlphaGalileo project. The project's influence will be greatly
increased by coverage of all European science, and the Government
will provide what help it can to ensure that the bid for Framework
5 funding for AlphaGalileo is successful. The Government welcomes
the fact that this was a joint bid by seven EU countries and believes
that this is a reflection of the growing recognition of the valuable
service that AlphaGalileo provides.
Footnotes
1. 'Excellence
and Opportunity - a Science and Innovation Policy for the 21st
Century' Ref. Cm 4814
2. Guidelines
2000: scientific advice and policy making, July 2000, URN
00/1026
3. Consultation
on a code of practice for scientific advisory committees,
July 2000, URN 00/1086
4. Quangos: Opening
the Doors - Cabinet Office
5. Government Response
to Royal Commission on Environmental Pollution Report on Setting
Environmental Standards - ISBN 0101479425
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