Corporate report

Science Advisory Council annual report April 2018 to March 2019

Published 20 February 2020

1. Introduction

This report provides a review of Defra’s Science Advisory Council’s (SAC) activities from April 2018 to March 2019.

The SAC is a Non-Departmental Public Body (NDPB) which provides independent expert advice and scientific challenge to Defra. The SAC helps guide Defra’s scientific priorities and planning, including long-range planning, as well as dealing with immediate risks and opportunities. Full details of the responsibility of the SAC can be found on its website.

During the year the SAC has held four principal meetings and eight teleconferences. These were attended by the Defra Chief Scientific Adviser (CSA) and Deputy CSA as well as observers from the Devolved Administrations. In addition, there are two standing sub groups: Exotic Diseases (SAC-ED) and the Social Science Expert Group (SSEG).

The range of topics discussed by the SAC reflects the issues confronting Defra. Its agenda is structured to integrate it within the Department’s workings, whilst retaining its capacity to provide critical challenge. The SAC is both reactive to Defra’s needs and raises issues itself that it believes would be helpful for the Department to consider.

The SAC strives to be visible and available to Defra and, without compromising its position as an NDPB, has made clear its role as a resource that can help to improve the quality of the evidence base upon which Defra policy is built. This ambition will continue, and is particularly important at a time when the Defra group is focussing on delivering Brexit as well as working to join up activities across evidence and policy and taking a systems-thinking approach to understanding the key policy questions across the Defra Group.

The SAC also engages at a ministerial level, this is reflected by an annual meeting between the Minister of State for Agriculture, Fisheries and Food and the SAC Chair. The Secretary of State attended part of the December 2018 principal meeting.

The SAC currently comprises of eleven members, including the Chair, Professor Sir Charles Godfray. The SAC welcomed two new members in January 2019, Professors Hails and Field. Full membership details are on the SAC website.

2. SAC achievements and activities

Throughout the reporting year the SAC has provided advice and challenge on a wide range of issues. The SAC provides immediate feedback on evidence-related issues and considers whether some topics need more detailed discussion at a subsequent meeting or through convening a time-limited sub group. Issues discussed by the SAC during the year are described below (work continues on some topics). The SAC also receives regular updates, from the Chief Scientific Adviser (CSA) and from the Chairs of the standing SSEG and SAC-ED sub groups.

3. Discussion topics

3.1 Centres of Excellence

The SAC was asked to consider the proposal to establish two new Defra Centres of Excellence (CoE), on data science and environmental DNA, which would bring together expertise from across the Defra group. This followed the success of the Earth Observation CoE. The SAC agreed that CoEs are a good communicating mechanism within the Defra group and stressed the importance of maintaining good links across all three CoEs, especially given the shared ambition around data science. Also, Defra should strive to interact with the external community in a coordinated way using the CoEs. The SAC asked to view and comment on future annual reports and offered to review future proposals.

3.2 Clean Air Strategy consultation

Defra published its consultation on the Clean Air Strategy setting out how government would deliver the UK’s commitments to reducing emissions of air pollutants whilst prioritising actions to secure optimum benefits for public health and the environment. To ensure robust measurements of response variables in the atmosphere, the SAC recommended that Defra should consider how quickly these could be fed into decision-making on policy choices. The SAC also advised that horizon scanning could be better utilised across Defra to help with issues such as avoiding unintended consequences and contribute to better join up across the strategies.

3.3 Environmental Principles and Governance Bill

The EU (Withdrawal) Act provided a list of environmental principles to be included in legislation alongside a requirement, on government, to publish a policy statement. The principles would be used to shape future policy and legislation. The SAC was asked to provide independent advice on the emerging findings from the consultation and the key environmental principles underpinning the Bill. In response, the SAC suggested that the definition of the precautionary principle should be carefully considered to avoid confusion due to different interpretations. Discussion also focussed on the necessity of nine environmental principles and the potential to merge some of these. Also, care should be taken to avoid principles being interpreted as a long list of rules, they should instead, be used as considerations for policy-makers to use. In addition, the SAC recommended that it might be appropriate to align the key principles to the Sustainable Development Goals, which are supported internationally.

3.4 Evidence statements

Evidence statements are systematically produced summaries of evidence in a defined policy area designed to support decision making. 2018 was a trial year in relation to establishing and evaluating a process for Defra. The SAC was asked to provide comments on six evidence statements. Overall, the SAC acknowledged the benefit these provide (to Defra) and stressed the importance of ensuring high visibility through appropriate dissemination and promotion as well as linking the topics addressed to any gaps identified in the refresh of Defra’s Areas of Research Interest.

3.5 Defra’s Executive Committee (ExCo): Science and evidence funding

The SAC was informed about Defra’s science and evidence funding and the research and innovation direction for the next five years. Designed to be an indicative, high level vision for Defra research and development, the SAC was asked for their views. Overall, the SAC supported the proposal and encouraged its use as an opportunity for greater partnerships with the research community. SAC commented that closer alignment of articulated research needs with stakeholder capacity, and framing evidence requirements for both social and natural science, would be helpful.

3.6 Interaction with Defra’s Executive Committee (ExCo)

This was an opportunity for Defra’s ExCo to discuss the SAC’s future support to Defra, and how its integration in the work of the Department could be progressed. ExCo proposed that senior level engagement with the SAC should be developed, possibly in the form of dialogue, focussing on emerging issues, on a quarterly basis. It was noted that the Group of Permanent Secretaries regularly consider horizon scanning to help identify challenging issues across government and the SAC could contribute by advising on Defra-related issues and work with ExCo to identify priorities. Discussion also focussed on the importance of communication and building connections between Defra and the science community to help align research and Defra’s evidence priorities. The importance of obtaining early science input to policy development was recognised and effective engagement internally and externally would support this.

3.7 Expert group on pollution from fertilisers

The proposed expert group arises from the Clean Air Strategy which includes the commitment to reduce pollution from fertilisers. The SAC supported the proposal of setting up an expert group and the potential involvement of SAC members.

3.8 The future of food, farming and environment consultation: Health and Harmony: the future for food, farming and the environment in a Green Brexit

It was agreed that the most valuable input from SAC would be after the consultation and during Defra’s analysis of the consultation outcomes. The SAC was also asked to comment on the evidence compendium. Defra discussed the variety of consultation responses received and the process for analysing the responses. The SAC was asked to consider key areas on which they could provide advice and support. Potential areas the SAC identified for further discussion were defining public goods, and the use of current and future technologies to support policy implementation and evaluation.

3.9 Future of land use

The Landscape Decision-making Programme is a recently funded Research Council initiative which includes a theme on Mathematical and Statistical Challenges to be based at the Isaac Newton Institute (INI) later this year. SAC member, Professor Cox asked SAC how this might contribute to Defra’s thinking in this area. The SAC agreed that both human and environmental well-being is central to the programme and expressed concern that, as currently framed, the environment well-being was not sufficiently explicit. Assistance is required to determine what Defra users and its stakeholders need to be able to predict and what data currently exists. The SAC agreed to consider, and suggest, individuals who could provide an alternative perspective to enable the programme to avoid becoming siloed and consider different scenarios.

3.10 Organisation scenario planning

The SAC was briefed on the Defra organisation scenario planning and asked to consider how they could effectively contribute. The planning, while at an early stage, considered Defra’s configuration, capability and size and what this might look like in 2030. The SAC agreed that exploring future states would be beneficial without making any prior organisational assumptions. However, the SAC recognised that some of the conditions for Defra’s organisation scenario planning have already been set by the 25 Year Environment Plan.

3.11 Resources and Waste Strategy

The Strategy will be guided by two overarching objectives: to maximise the value from resources and to minimise waste and the associated impacts at end of life. The SAC was asked for views on the high-level approach and goals, developing areas of research interest, government promotion of research and how to stimulate innovation. In response, the SAC advised that food waste issues are often impacted by biosecurity legislation and this area should be considered within the strategy. They also recommended that food waste should have a dedicated area of research interest. Plastic waste was also raised, in particular the challenge of extending the variety of plastics that could be recycled as well as developing research on replacements for plastics. This could also be considered as a potential area of research interest. The SAC questioned how issues that did not fit comfortably into production, consumption and end-of-life stages would be dealt with, for example fibres from synthetic clothes becoming micro-plastics. Defra informed the SAC that work to develop metrics for evaluating implementation of the strategy was underway, and SAC input to these would be welcomed. SAC indicated that it would be helpful to consider metrics for the circular economy, as a measure of efficiency and environmental sustainability, and how this would link with the 25 Year Environment Plan.

3.12 Defra group science and analysis conference 2019

The SAC provided comments on the plans for the 2019 Defra group Science and Analysis conference, designed to be an interdisciplinary forward-thinking event exploring the longer-term strategic priorities for science and analysis. The Chair encouraged all the SAC members to be involved in the conference.

3.13 Science capability for animal health

The SAC was informed about the development of a business case designed to provide the scientific rationale for government investment in animal health and for the redevelopment of laboratory facilities. The SAC agreed that the case provided a rationale for animal health research and science capabilities, in terms of government investment, and how this fitted into the broader need for wider science integration. SAC members with relevant expertise provided detailed comments on the business case. The SAC recommended that further consideration could be given to the potential role of novel and emerging technologies in contributing to better animal health. SAC members praised the One Health Approach which aligns human health, animal health and the environment but recommended that this could be strengthened further. Links to Defra’s 25 Year Environment Plan could also be developed. Also, longer term thinking should highlight climate change as a particular risk and there was an opportunity for the case to say more about the importance of animal health and welfare for wider objectives, such as productivity and competitiveness.

3.14 Defra group science capability assessment and Go-Science/HMT cross-government review of science capability

The SAC was invited to comment on the seven key themes, forming the basis of the final capability assessment report. The SAC recommended caution about using the term “national capability” too indiscriminately and stressed the importance of communicating the role Defra can play in the science and research landscape, not simply as a provider, but as a strategic leader. Digital infrastructure is a key element of capability and whilst there are challenges in achieving the right digital landscape, there are opportunities which Defra should explore. Defra should also explore ways to improve its scientific impact as well as communicating its science.

3.15 Standards for biodegradability of plastics

The SAC was informed of discussions across Defra and the Department for Business, Energy and Industrial Strategy (BEIS) regarding biodegradability of plastics. Against the backdrop of increasing numbers of technologies and claims regarding biodegradability, there is a need to explore the development of standards and definitions for biodegradable plastics. Options for potential support from the SAC on this work were discussed. Potential areas to explore include definitions of biodegradability, understanding different chemistries and the extent to which this would impact on biodegradability, and what would need to be considered in the development and testing of standards. It was agreed that the SAC would support this work going forward.

3.16 Strategic projects

As part of Defra’s Brexit planning, the CSA’s Office is leading a programme of work to develop a new functional capability for delivering systems-based research to support future policy development and evaluation, focusing on key environmental systems - air, land and marine. The SAC was asked to provide views on the proposed features and criteria for the frameworks and on the initial phase of work and mechanisms for stakeholder engagement. In terms of the proposed approach, the SAC stressed the importance of not being too prescriptive on the different approaches to be explored. The SAC expressed concern about the potential size of the task in seeking to capture all aspects of, and impacts on, the environmental systems of focus, and recommended that Defra should first define the boundaries around which the systems maps would be developed. Moreover, if Defra was aiming for a decision tool it would need to understand the systems dynamics and how the model or framework would be applied. In relation to stakeholder engagement, the SAC noted Defra’s intention to hold meetings and workshops and to recruit external academics to lead the work programmes. It would be important to ensure the project meets policy objectives, and engagement with the relevant Research Councils would be important throughout the process.

3.17 25 Year Environment Plan

Throughout the reporting year the SAC provided advice and challenge in respect of the 25 year environment plan. Discussion primarily focused on the development of the metrics, the indicator framework and the supplementary evidence report. To summarise some of the SAC’s advice:

• development of a specific high level, standalone, climate change indicator and strengthening of some of the urban environmental indicators
• there should be a clear narrative of the frameworks development
• the framework should include mechanisms for how it can be developed, reviewed and updated in the future - for example, indicators should be capable of being modified or new ones introduced, and so allow robust evolution of the framework in future
• Defra could consider the potential for new technologies in support of monitoring and evaluation; approaches should be robust, able to detect change at the appropriate level, be adaptable to account for changing indicators and ensure they remain relevant and draw on the latest science

3.18 UK climate projections 2018 (UKCP18)

The SAC was asked to provide views on effective routes for engagement with the evidence community. The SAC recommended holding a workshop prior to the UKCP18 launch which could allow for the early release of some data to stakeholders, and provide an opportunity to present to the wider community on some of the differences between UKCP18 and UKCP09. It might also be useful to establish some impact groups to undertake small projects. Furthermore, a high-level document setting out the main outcomes from UKCP18 and an early synthesis of the data would highlight how the data could be used and help support engagement with stakeholders.

3.19 UK Research and Innovation (UKRI)

Discussion focused on the robustness of current engagement mechanisms between Defra and UKRI and how these could be further developed. Overall, the SAC endorsed the general direction taken by Defra and the engagement mechanisms being used. However, while UKRI’s Strategic Priorities Fund was welcomed, there remained issues around how to align funding of research to support government priorities and the need to monitor projects supported under this initiative to ensure research remained relevant to Defra requirements. The balance between basic, fundamental research and more strategic research would need to be considered in the future. The importance of inter-disciplinary working was also emphasised and there was an opportunity, through the creation of UKRI, to drive forward greater joint work between Research Councils and evidence professions in the framing and delivery of research.

A number of other topics were brought to the SAC’s attention throughout the year. These are detailed in Annex 1.

4. Futures work

Following discussions with Defra’s Executive Committee in September 2018, the SAC was asked to conduct a horizon scanning project. To facilitate this, and maximise the use of the SAC’s expertise, a futures workshop was held. The futures work aimed to provide an independent perspective on plausible futures, ensuring that Defra’s strategy is resilient and prepared for the future.

In preparation for the workshop, SAC members submitted horizon scans and, SAC members, devolved administration observers, the CSA and Deputy CSA were interviewed using the 7 Questions technique^{[footnote 1]} (which focuses the interviewee on the extremes of their pessimistic and optimistic views of the future to identify key indicators). The interviews were structured to facilitate the consideration of possible futures over the next 10 years and the implications for Defra. The findings from the 7 Questions interviews and the horizon scans were used to produce a report and informed the planning of the workshop.

4.1 Futures workshop

The top 20 strategic indicators identified from the preparatory work were expanded and assessed in terms of their uncertainty and impact. The indicators which fell into the high impact, high uncertainty quadrant were used to develop two scenario axes – control of landscapes and state of social consciousness. Based on the extremes of these axes the four plausible scenarios were developed. The SAC is currently determining how best to use this work to address ExCo’s request.

5. Sub groups

The SAC establishes time-limited sub groups on particular topics when more in-depth studies are considered necessary. These are chaired by a member of the SAC and include non-SAC members co-opted to the sub group, to increase the range of relevant expertise to contribute to the study. In addition, there are two standing sub groups on exotic diseases and social science.

5.1 Ocean acidification (January 2018 to May 2018)

The UK is committed to playing a leading role on Ocean Acidification (OA) globally and are keen to consolidate the UK’s position on OA. A sub group, chaired by Professor Jickells, was tasked to provide advice on how the UK could contribute to the global effort to measure OA. Work began during the last reporting year but concluded during 2018. A report, providing a framework for a national OA monitoring strategy, building on the UKOA programme was published 31 July 2018. Feedback, from Defra, is below:

The Defra Ocean Climate and International evidence team are grateful for the work of the SAC and the OA sub-committee in the production of the report on OA monitoring. This report has been widely disseminated and the response has been extremely positive. It has formed the basis for actions taken forward by the newly formed European Global Ocean Acidification-Observation Network Hub and has been shared with the International Alliance to Combat Ocean Acidification (based in the United States). It was also used to input key ideas and information into the Commonwealth Blue Charter Action Group on Ocean Acidification. The first workshop was held in New Zealand in February 2019 and the report recommendations were shared with other Commonwealth participants to help guide OA plans in their respective countries.

5.2 Exotic diseases (SAC-ED)

The sub group, chaired by Professor James Wood and working in partnership with the Defra Chief Veterinary Officer, has two separate functions in relation to animal diseases: in an emergency situation and during the absence of a disease outbreak. During the reporting year, the SAC-ED held two meetings. An annual routine meeting in November 2018 provided opportunity to discuss the economic cost of exotic disease outbreaks, African swine fever, Brexit preparedness (in relation to animal disease control) and APHA’s approach to reactive epidemiological modelling. It was also an opportunity to review membership along with the sub group’s function to ensure it remained relevant to Defra. At the request of SAC-ED a subsequent meeting was held (March 2019) to specifically discuss African swine fever, in particular: vaccination, Defra’s communication strategy, and disease transmission risks and modelling. SAC-ED stand ready to provide further advice if required this includes assurance on ASF contingency planning and modelling capabilities.

5.3 Social Science Expert Group (SSEG)

Chaired by Professor Sarah Whatmore, the SSEG provides advice and support to help improve Defra’s policies and their impact through the effective advice on and use of high-quality social science evidence. The SSEG meets twice a year and holds teleconferences between meetings. The SSEG have worked on a number of projects throughout the reporting year. Of particular note, the SSEG conducted an Evidence Review on Landscape Quality, in support of the 25 Year Environment Plan, a report will be published later this year. Additionally, the SSEG has provided analytical support for the upcoming Food Strategy.

6. Defra/SAC pairing scheme

To support communication and understanding between the SAC and Defra each SAC member is paired with a relevant senior policy official. It provides Defra officials with the opportunity to update SAC members on the emerging policy and evidence issues and to use the SAC member as an independent sounding board for informal advice or challenge. The SAC member has an opportunity to update Defra officials on current and future priorities for SAC and enables the SAC member to develop a detailed understanding of the policy content and associated evidence.

7. Representative activities

SAC members are encouraged to use their professional networks and expertise to alert the Department to issues and new scientific understanding that may affect Defra’s evidence gathering and needs. This is captured at every meeting in a discussion on emerging issues. A number of these issues have since been discussed at a meeting or added to the SAC work plan.

The members of SAC contribute more widely to Defra in addition to the SAC meetings and sub groups. These are varied and typically relate to the SAC member’s expertise. An example is highlighted below:

In February 2018, Defra commissioned an independent review of its strategy for achieving Officially Bovine Tuberculosis Free (OTF) status in England by 2038. The review was led by the SAC Chair, Professor Sir Charles Godfray and Professor James Wood, SAC member, was appointed as member of the working group. The review took place during spring and summer 2018 and reported to Ministers in October 2018. The government ’s response to the Report has been delayed by Brexit work and is currently scheduled for November 2019.

8. Closing remarks

As described above, over the reporting period the SAC has engaged with Defra across a broad range of policy areas. SAC’s working method is to engage collaboratively with the Department to address its science and evidence needs while maintaining its capacity to provide independent challenge. The SAC appreciates the willingness of Defra staff to interact on these terms, as well as their frankness and the openness to new ideas.

A good working relationship with the Chief Scientific Advisor is critical to the effective working of the SAC. Professor Sir Ian Boyd, stepped down in September 2019 after seven years in the role. The SAC is unanimous in its gratitude and admiration for the way that Sir Ian has interacted with the Council, and more generally the way he has championed the importance of the natural and social sciences within Defra. It was delighted at the news of his knighthood in 2019. The SAC welcomes and much looks forward to working with his successor, Professor Gideon Henderson.

The next 12 months will be a period of change for Defra as the UK develops policies as an independent sovereign state. The SAC stands ready to work with Defra to ensure that the natural and social sciences contribute as much as they can to the evidence base underpinning the development of Defra policy.

9. Annex 1: Overview of issues brought to SAC’s attention during the reporting year

The following specific areas of scientific work within Defra were brought to the SAC’s attention throughout the reporting year. It should be noted that this is a retrospective list and as such comments and policy may have moved on since the discussions took place.

1. The SAC received regular updates on Defra Brexit activities. This included the importance of ensuring strong scientific input to this work as well as Departmental preparations including the prioritisation of business, staff and resources. The SAC offered to assist and provide advice when required.

2. The Defra CSA informed the SAC of his responsibilities as Chair of the Decontamination Assurance Group (Salisbury incident). Looking to the future, the SAC could provide independent scrutiny of any future lessons learnt report.

3. Defra had launched a consultation on the contents of the Environmental Principles and Governance Bill. Going forward, it was agreed that the SAC could potentially have a future role in considering the principles set out in the Bill to ensure they are appropriate.

4. The SAC was advised that The Clean Air Strategy would be published for consultation. An upcoming strategy, focussing on waste and resources will be developed later in the year. It was agreed that this could be a future SAC discussion.

5. In relation to Brexit and science, the forum of Departmental CSA’s would undertake horizon scanning to enable future planning. Several areas of focus have been identified.

6. The working relationship between UKRI and government departments continues to develop. It was agreed that a future SAC high level discussion will be tabled.

7. In light of the publication of the government ’s fisheries white paper “Sustainable Fisheries for Future Generations”, a public consultation would continue until 12 September 2018.

8. Planning would commence for the 2019 Defra Science and Analysis conference and Howard Dalton Lecture. The SAC would be kept up to date with the planning for the Lecture.

9. The CSA’s Office will lead four Brexit science projects; Access to Earth Observation Data, Systems Research, International Research and International Statistics Reporting.

10. In relation to international science activity, Defra will lead a 5-eyes for agriculture initiative which will develop and promote science and research collaboration with the USA, Canada, Australia and New Zealand.

11. The UK Climate Projections 2018 would be published later in the year.

12. The SAC was informed about upcoming work on the systems research projects, linking the evidence surrounding five key environmental systems (rural land use; marine; air quality; food and waste and resources). A number of academic fellows would be appointed to lead this work. The SAC agreed to disseminate, amongst their networks, future adverts seeking academic system leads.

13. The Defra Executive Committee had considered the SR19 high level plan which includes the importance of research. There will be greater implications for the science strategy over the next five years. The SAC offered its support, if required. The CSA, in welcoming the SACs support, anticipated further involvement of SAC.

14. The SAC was updated on the government CSA’s (GCSA’s) plans for science within government . This will include recognising progression and the differences from academia and industry. A steering group has been established with CSA representatives from a range of organisations to develop an effective and coherent CSA network. The SAC highlighted the importance of making the best use of the CSA network.

15. The SAC was updated on the government CSA network and the efforts to improve the way science works across government.

16. Defra has been working with other government departments and UKRI on Plan S, an initiative which sets out the ambition that, by 2020, the results from publicly funded research will be open access. The SAC’s advice will be sought on this matter.

1. Government Office for Science Futures Toolkit: www.gov.uk/government/publications/futures-toolkit-for-policy-makers-and-analysts ↩