The Role of Science in Public Policy: Higher Reason,or Reason for Hire?

The traditional vision of the role science should play in policy making is of a two stage process of scientists first finding out the facts, and then policy makers making a decision about what to do about them. We argue that this two stage process is a fiction and that a distinction must be drawn between pure science and science in the service of public policy. When science is transferred into the policy realm, its claims to truth get undermined because we must abandon the open-ended nature of scientific inquiry. When we move from the sphere of science to the sphere of policy, we pick an arbitrary point in the open-ended scientific process, and ask our experts to give us the answer. The choice of the endpoint, however, must always be arbitrary and determined by non-scientific factors. Thus, the two stages in the model of first finding the facts, and then making a decision about what to do, cannot be clearly separated. The second stage clearly affects the first. This conclusion will have implications about existing scientific policy institutions. For example, we advocate that the environmental assessment process be radically overhauled, or perhaps even let go. It will be our position that ultimately a better model for the involvement of scientists in public policy debates is that of being participants in particular interest groups (“hired guns”), rather than as supposedly unbiased consultants to decision-makers.     

Air Quality Management in UK Local Authorities: Public Understanding and Participation

Science and technology are an integral part of informing public policy on air pollution and transport management. Expectations of science and technology by society and their use by air quality policy makers has led to increasing reliance upon this evidence to promote health and well-being. This can be seen, for example, in the setting of the UK national objectives for air pollutants based on exposure and health effects. This paper addresses three questions. It assesses, through the use of focus groups, the public perceptions of air pollution and the atmospheric dispersion model output from the Atmospheric Dispersion Modelling System-Urban. Then it assesses their understanding of this information and its current presentation to the layperson. Finally, it assesses how their perceptions and understanding influence their solutions to local air quality management in the London Borough of Camden. The results show that participants in the study struggled with the concept of air pollution outside their sphere of experience, and they did not understand the scientific basis or modelling used to inform local policy. This is partly a result of the way this information is presented. They did not relate the technological evidence to their opinions of acceptable solutions or they expressed reluctance to suggest specific options. It is proposed that a well-informed public would make comprehensive decisions on air quality based upon a broader range of factors, incorporating the scientific reasoning and technological information as well as emotive and socio-economic factors. A balance between science and technological understanding with the validity of local expertise will improve air quality policy making to the greater satisfaction of all stakeholders.     

Journalism and Science: How to Erode the Idea of Knowledge

This paper discusses aspects of the relationship between the scientific community and the public at large. Inspired by the European public debate on genetically modified crops and food, ethical challenges to the scientific community are highlighted. This is done by a discussion of changes that are likely to occur to journalistic attitudes – mirroring changing attitudes in the wider society – towards science and scientific researchers. Two journalistic conventions – those of science transmission and of investigative journalism – are presented and discussed in relation to the present drive towards commercialization within the world of science: how are journalists from these different schools of thought likely to respond to the trend of commercialization? Likely journalistic reactions could, while maintaining the authority of the scientific method, be expected to undermine public trust in scientists. In the long term, this may lead to an erosion of the idea of knowledge as something that cannot simply be reduced to the outcome of negotiation between stakeholders. It is argued that science is likely to be depicted as a fallen angel. This may be countered, it is posited, by science turning human, by recognizing its membership of society, and by recognizing that such membership entails more than just commercial relations. To rethink its relationship with the public at large – and, in particular, to rethink the ideal of disinterested science – is an ethical challenge facing the scientific community.     

The Precautionary Principle: Scientific Uncertainty and Omitted Research in the Context of GMO Use and Release

Commercialization of genetically modified organisms (GMOs) have sparked profound controversies concerning adequate approaches to risk regulation. Scientific uncertainty and ambiguity, omitted research areas, and lack of basic knowledge crucial to risk assessmentshave become apparent. The objective of this article is to discuss the policy and practical implementation of the Precautionary Principle. A major conclusion is that the void in scientific understanding concerning risks posed by secondary effects and the complexity ofcause-effect relations warrant further research. Initiatives to approach the acceptance or rejection of a number of risk-associated hypotheses is badly needed. Further, since scientific advice plays a key role in GMOregulations, scientists have a responsibility to address and communicate uncertainty to policy makers and the public. Hence, the acceptance of uncertainty is not only a scientific issue, but is related to public policy and involves an ethical dimension.     

Assumptions of the Deficit Model Type of Thinking: Ignorance, Attitudes, and Science Communication in the Debate on Genetic Engineering in Agriculture

This paper spells out and discusses four assumptions of the deficit model type of thinking. The assumptions are: First, the public is ignorant of science. Second, the public has negative attitudes towards (specific instances of) science and technology. Third, ignorance is at the root of these negative attitudes. Fourth, the public’s knowledge deficit can be remedied by one-way science communication from scientists to citizens. It is argued that there is nothing wrong with ignorance-based explanations per se. Ignorance accounts at least partially for many cases of opposition to specific instances of science and technology. Furthermore, more attention needs to be paid to the issue of relevance. In regard to the evaluation of a scientific experiment, a technology, or a product, the question is not only “who knows best?,” but also “what knowledge is relevant and to what extent?.” Examples are drawn primarily from the debate on genetic engineering in agriculture.     

Food Supply Chain Governance And Public Health Externalities: Upstream Policy Interventions And The UK State

Contemporary food supply chains are generating externalities with high economic and social costs, notably in public health terms through the rise in diet-related non-communicable disease. The UK State is developing policy strategies to tackle these public health problems alongside intergovernmental responses. However, the governance of food supply chains is conducted by, and across, both private and public spheres and within a multilevel framework. The realities of contemporary food governance are that private interests are key drivers of food supply chains and have institutionalized a great deal of standards-setting and quality, notably from their locations in the downstream and midstream sectors. The UK State is designing some downstream and some midstream interventions to ameliorate the public health impacts of current food consumption patterns in England. The UK State has not addressed upstream interventions towards public health diet at the primary food production and processing stages, although traditionally it has shaped agricultural policy. Within the realities of contemporary multilevel governance, the UK State must act within the contexts set by the international regimes of the Common Agricultural Policy and the World Trade Organization agreements, notably on agriculture. The potential for further upstream agricultural policy reform is considered as part of a wider policy approach to address the public health externalities issuing from contemporary food supply chains within this multilevel governance context.     

The Technological Fix Criticisms and the Agricultural Biotechnology Debate

A common tactic in public debates over science and technology is to dismissively label innovations as mere technological fixes. This tactic can be readily observed in the long debate over agricultural biotechnology. While these criticisms are often superficial rhetorical tactics, they point to deeper philosophical disagreements about the role of technology in society. Examining the technological fix criticism can clarify these underlying philosophical disagreements and the debate over biotechnology. The first part of this essay discusses the origins of the notion of a technological fix and distinguishes two types of technological fix criticisms, philosophical and practical. These distinctions are then applied to clarify and evaluate arguments for and against agricultural biotechnology. This analysis should clarify the debates over agricultural biotechnology and bring to light fundamental philosophical differences over the role of technology in agriculture.     

Greenhouse Gas Emissions from Agriculture: Reconciling the Epistemological,Ethical, Political,and Practical Challenges

The purpose of this paper is to provide further clarity to the technical and policy difficulties associated with mitigating greenhouse gas emissions from agriculture by identifying and distilling the core tensions which propagate and animate them. We argue that these complexities exist across four critical dimensions: the epistemological, the ethical, the political, and the practical. Adequately confronting the challenge of agricultural emissions will require improved transparency in emissions measurement, increased science communication, enhanced public participatory mechanisms, and the integration of ethical deliberation in scientific and policy discussions.     

Communicating climate science: The role of perceived communicator’s motives

In two experimental studies, we investigated the effects of public perceptions of climate scientists’ communicative motives on trust in scientists and willingness to engage with climate science messages. Study 1 demonstrated that members of the public who were led to believe that scientists aim to inform about the consequences of climate change (rather than to persuade to take a particular course of action) reported higher trust in scientists and stronger willingness to engage in environmental behaviour. Study 2 revealed that this effect was moderated by the style of the scientific message that participants were exposed to. Participants who expected scientists to engage in persuasion were more receptive to persuasive rather than informative messages, while the opposite was true for participants who believed that scientists’ purpose was purely to inform. In both studies the effects of perceived motives on willingness to act in line with the climate change messages were mediated through trust in scientists. The data demonstrate that managing public expectations about the purposes of science communication and delivering messages that are consistent with these expectations are a key to successful communication of climate science.     

Recombinant bovine somatotropin (rbST): Is there a limit for biotechnology in applied animal agriculture?

The intent of this article is to outline, integrate, and interpret relevant scientific, economic, and social issues of rbST technology that have contributed to the acceptance dilemma for this product. The public is divided into social groups, each with its own set of criteria on which they base rbSTs acceptability. Criteria for the scientific community may best be described as physiological. However, for consumers, criteria may be more practical, or procedural, including human health, animal welfare, environmental concerns, and overproduction. Because the business of dairy production depends on demand from the consuming public, the criteria for acceptance of rbST by producers largely reflects those of the consumers. Of necessity, producers are also critical of rbST from a business and animal improvement standpoint. Although this article demonstrates that rbST has met most physiological criteria for acceptance, the consuming public has treated the acceptance issue with forceful skepticism. The question this article addresses is, why? The authors comment that with rbST and other biotechnologies applied to agricultural animal production, it will be the responsibility of government health agencies, scientists, and manufacturers of the products to provide early, adequate, and honest public education. Attention to the concerns of the public may be the only means to prevent hysteria over this and future agricultural products of biotechnology and will, therefore, allow the public to form logical and thoughtful criteria assessments with respect to acceptance or rejection of each product.     

Scientist and policy-maker response types and times in suburban watersheds

Differences between scientist and policy-maker response types and times, or the “how” and “when” of action, constrain effective water resource management in suburbanizing watersheds. Policy-makers are often rushed to find a single policy that can be applied across an entire, homogeneous, geopolitical region, whereas scientists undertake multiyear research projects to appreciate the complex interactions occurring within heterogeneous catchments. As a result, watershed management is often practiced with science and policy out of synch. Meanwhile, development pressures in suburban watersheds create changes in the social and physical fabric and pose a moving target for science and policy. Recent and anticipated advances in the scientific understanding of urbanized catchment hydrology and pollutant transport suggest that management should become increasingly sensitive to spatial heterogeneities in watershed features, such as soil types, terrain slopes, and seasonal watertable profiles. Toward this end, policy-makers should encourage funding scientific research that characterizes the impacts of these watershed heterogeneities within a geopolitical zoning and development framework.     

The very structure of scientific research mitigates against developing products to help the environment,the poor,and the hungry

Conclusions From the arguments I have presented, I hope it is clear that the distinction between basic and applied research is tenuous. Certain areas of research and methods may be favoured over others because of intrinsic biases, which are predictive of the type of application possible. Believing in the neutrality of pure knowledge is like wearing blinders: scientists need not be too concerned about the way in which the knowledge they generate is used. In my own case, this belief led to my participation in a system of agriculture to which I do not subscribe. Scientists should be willing to take responsibility for how they function in the system as a whole. Given the social structure of science, it is difficult for basic researchers to see their connections with the larger issues, much less to control them. Perhaps new ways of constructing knowledge-generating societies will be necessary in order to encourage individual responsibility.     

Communicating About Bioenergy Sustainability

Defining and measuring sustainability of bioenergy systems are difficult because the systems are complex, the science is in early stages of development, and there is a need to generalize what are inherently context-specific enterprises. These challenges, and the fact that decisions are being made now, create a need for improved communications among scientists as well as between scientists and decision makers. In order for scientists to provide information that is useful to decision makers, they need to come to an agreement on how to measure and report potential risks and benefits of diverse energy alternatives in a way that allows decision makers to compare options. Scientists also need to develop approaches that contribute information about problems and opportunities relevant to policy and decision making. The need for clear communication is especially important at this time when there is a plethora of scientific papers and reports and it is difficult for the public or decision makers to assess the merits of each analysis. We propose three communication guidelines for scientists whose work can contribute to decision making: (1) relationships between the question and the analytical approach should be clearly defined and make common sense; (2) the information should be presented in a manner that non-scientists can understand; and (3) the implications of methods, assumptions, and limitations should be clear. The scientists’ job is to analyze information to build a better understanding of environmental, cultural, and socioeconomic aspects of the sustainability of energy alternatives. The scientific process requires transparency, debate, review, and collaboration across disciplines and time. This paper serves as an introduction to the papers in the special issue on “Sustainability of Bioenergy Systems: Cradle to Grave” because scientific communication is essential to developing more sustainable energy systems. Together these four papers provide a framework under which the effects of bioenergy can be assessed and compared to other energy alternatives to foster sustainability.     

Implementing Participatory Decision Making in Forest Planning

Forest policy decisions are often a source of debate, conflict, and tension in many countries. The debate over forest land-use decisions often hinges on disagreements about societal values related to forest resource use. Disagreements on social value positions are fought out repeatedly at local, regional, national, and international levels at an enormous social cost. Forest policy problems have some inherent characteristics that make them more difficult to deal with. On the one hand, forest policy decisions involve uncertainty, long time scales, and complex natural systems and processes. On the other hand, such decisions encompass social, political, and cultural systems that are evolving in response to forces such as globalization. Until recently, forest policy was heavily influenced by the scientific community and various economic models of optimal resource use. However, growing environmental awareness and acceptance of participatory democracy models in policy formulation have forced the public authorities to introduce new participatory mechanisms to manage forest resources. Most often, the efforts to include the public in policy formulation can be described using the lower rungs of Arnstein’s public participation typology. This paper presents an approach that incorporates stakeholder preferences into forest land-use policy using the Analytic Hierarchy Process (AHP). An illustrative case of regional forest-policy formulation in Australia is used to demonstrate the approach. It is contended that applying the AHP in the policy process could considerably enhance the transparency of participatory process and public acceptance of policy decisions.     

Scientist and Policy-Maker Response Types and Times in Suburban Watersheds

Differences between scientist and policy-maker response types and times, or the “how” and “when” of action, constrain effective water resource management in suburbanizing watersheds. Policy-makers are often rushed to find a single policy that can be applied across an entire, homogeneous, geopolitical region, whereas scientists undertake multiyear research projects to appreciate the complex interactions occurring within heterogeneous catchments. As a result, watershed management is often practiced with science and policy out of synch. Meanwhile, development pressures in suburban watersheds create changes in the social and physical fabric and pose a moving target for science and policy. Recent and anticipated advances in the scientific understanding of urbanized catchment hydrology and pollutant transport suggest that management should become increasingly sensitive to spatial heterogeneities in watershed features, such as soil types, terrain slopes, and seasonal watertable profiles. Toward this end, policy-makers should encourage funding scientific research that characterizes the impacts of these watershed heterogeneities within a geopolitical zoning and development framework.     

Management challenges of urban biosolids: narratives around facility siting in rural Ontario

The emerging challenge of managing increasing volumes of urban sewage has resulted in municipalities pursuing sustainable ways to manage urban biosolids and their by-products. Using content analysis of public debates, and situating the debate within science, policy and facility siting literature, this study examines claims and counterclaims relating to the siting of a biosolid processing facility in rural Ontario. The equivocal evidence on the health and environmental effects of biosolids resulted in a heated “expert versus lay” debate. The study critically evaluates the importance of trust and the shifting role of scientific evidence in politicised settings, while making relevant policy recommendations.     

Indicators of Sustainability: Challenges and Opportunities at the Interface of Science and Policy

Rising global interest in sustainability has triggered attention in indicators as a means of achieving a more sustainable world. Although the search for indicators has led to the development of criteria for good indicators, it has also been dominated by scientific elites. The consequences of such dominance leads to significant social and policy implications, particularly with regard to how the search for sustainability has become defined primarily as a technical/scientific exploration when it is actually a moral and ethical issue. Our discussion about sustainability and appropriate indicators centers on what constitutes the public interest, a question that requires inclusiveness and centers on the interface of science and policy. The paper reviews the rationale for selecting indicators, the functions they serve, and the implications and consequences involved when one sector—science—dominates the debate. The paper concludes with suggestions about appropriate roles of science, policy and the public in the indicator selection process.     

Corporate Social Responsibility: Exploring a Framework for the Agribusiness Sector

Corporate social responsibility (CSR) has long been an issue for research and practice. More recently, in response to growing public scrutiny, it has also gained importance in the agribusiness sector. Research has highlighted a growing gap between public perceptions of farming and food production processes and the realities of modern agriculture and the food industry. This can threaten the reputation and legitimacy of companies operating in this sector. One proactive means for companies to meet societal expectations is to make an active commitment to society and its needs by implementing a CSR policy. However, there is still no clear definition of CSR, and what important stakeholders actually expect from companies remains largely unknown. This paper focuses on consumers’ perception of CSR. Its objective is to explore a CSR policy design for German agribusiness based on Archie B. Carroll’s famous pyramid model. A consumer survey was conducted to evaluate the CSR demands society places on agribusiness companies. An explorative factor analysis was employed to discover the outline of the construct in the German agribusiness context. The results reveal that Carroll’s model, which was developed from a U.S. point of view, cannot be confirmed for German agribusiness. Instead of Carroll’s four responsibility groups, three areas of responsibility were identified: economic, internal and external. These results have manifold implications for CSR strategies in agribusiness firms and represent an important origin for future investigations on CSR in other countries as well as in specific agribusiness subsectors.     

Sailing the Shoals of Adaptive Management: The Case of Salmon in the Pacific Northwest

/ Emerging ecosystem science builds on adaptive management as an approach to dealing with salmon problems in the Pacific Northwest. Adaptive management brings scientific and democratic processes together. However, managers, the public, resource users, and scientists differ in their views on the causes of salmon decline. Managers emphasize habitat loss and over-harvest as the primary causes; commercial fishers point to habitat loss, management practices, and predators; and the public gives greatest weight to water pollution and ocean drift nets. Scientific studies of salmon often produce results that seem contradictory or unclear to the public. For adaptive management to be effective, scientists' and the public need to better understand one another's perspectives.KEY WORDS: Perception; Fishery management; Salmon; Pacific Northwest; Science