POLICY GUIDE #2 September 2017 © Rajan Manickavasagam. Parliament HOW DOES SCIENCE INFORM THE UK PARLIAMENT?

The British Ecological Society (BES) is committed to making KEY MESSAGES the best ecological evidence accessible to decision-makers. Policymaking processes are rarely straightforward, however, • Parliament consists of the House of and understanding how best to share their expertise with Lords (HoL) the House of Commons (HoC), and the monarch which decision-makers can be challenging for scientists. Our Policy pass laws, scrutinise the work of Guides aim to improve communication between our members government and debate political and policymakers, increase the impact of ecological research and issues. support evidence-informed policymaking. • Bills become law through a series of stages. External evidence is usually INTRODUCTION HOW ARE LAWS MADE?3,4 sought at the committee and report stages. Bills must pass through This second guide focuses on the A Bill is a draft of a law. Bills can be both houses and are then made into structure, function and purpose of the introduced by Members (MPs and law through Royal Assent. UK Parliament, highlighting the different peers) in the HoC or the HoL. The first • Select Committees conduct channels through which science can reading of a Bill is a formality and takes inquiries and produce reports on a inform its work. It discusses four place without a debate. The Bill is then range of issues. They may appoint main routes: Select Committees, the published and a second reading occurs, special advisors, often academics, Parliamentary Office of Science and during which Members can debate the and usually begin inquiries with Technology, All-Party Parliamentary general themes and principles of the a call for written evidence. Oral Groups, and the House of Commons and Bill. After this comes the committee evidence sessions with relevant Lords libraries. stage, where detailed examination of experts then follow. the Bill takes place. In the HoL, peers WHAT IS PARLIAMENT? examine the Bill line by line. For Bills • All-Party Parliamentary Groups that start in the HoC, a Public Bill allow informal discussion of issues The UK Parliament consists of the Committee of MPs is usually formed, with Parliamentarians.1 House of Commons (HoC), the House which can take evidence from experts of Lords (HoL), and the monarch (in a outside of Parliament. • The Parliamentary Office of Science ceremonial role). The two Houses are and Technology provides analysis responsible for similar work: making After the committee stage, the Bill of public policy issues relating legislation, debating relevant issues and is reprinted and moves to the report to science and technology, and scrutinising the work of government. stage, where it can be further debated, consults widely with academia, Decisions made in one House usually amended and scrutinised. Finally, learned societies, government have to be approved in the other. the third reading takes place, with departments, industry, thinktanks When there is disagreement between debate focusing on the content of the and NGOs. the Houses, the primacy of the HoC report (rather than amendments or is sometimes invoked, based on the additions) and a vote is held on whether • The HoC and HoL libraries provide elected nature of the House.2 Under the to approve the third reading. Most research briefings to Members ‘Salisbury Doctrine’, the HoL does not Bills then move to the other House and their staff. They also organise try to vote down any Government Bill to undergo the same process, before topical talks by subject specialists mentioned in an election manifesto (see returning to its original House for final and external speakers. Fact Box on page 2). approval. If the two Houses do not agree FACT BOX HOUSE OF COMMONS

• Voters elect a Member of Parliament (MP) for their constituency. Normally, the party (or coalition) who can command the confidence of the House of Commons (HoC) forms the Government. There are currently 650 MPs. • Ministers are MPs who hold public office in government, while Shadow Ministers are their counterparts in the Opposition. MPs in ministerial positions Parliamentary Copyright. House of Commons Chamber are known as frontbenchers, © on amendments, the Bill can go back those who are not are known as 8 3 and forth between the two Houses in SELECT COMMITEES backbenchers. a process known as Consideration of • MPs debate issues, consider and Amendments or ‘ping-pong’5, and often SCs exist to investigate policy issues propose new laws, and scrutinise the outcome is in the favour of the HoC. in greater depth and to hold the government policies. Government to account. Both Houses Once approved by both the HoC and • MPs can examine government establish SCs, which are composed of the HoL, a Bill must be granted Royal policies by asking Ministers their Members. SCs use an investigative Assent by the monarch before becoming questions in the HoC Chamber or process to conduct inquiries and an Act of Parliament, i.e. a law.6 during committee inquiries. produce reports. Committees decide upon a field of inquiry and collect • The HoC has sole responsibility written and oral evidence from experts. for making decisions concerning CHANNELS FOR SCIENCE TO Findings are reported in the Commons financial bills, such as proposed and published on the Parliament new taxes. The House of Lords INFORM PARLIAMENT website. Government is required to (HoL) cannot block such a bill, only amend or delay them. A number of channels exist through produce a response to the findings of a which researchers may engage with SC, but is not compelled to take up any HOUSE OF LORDS Parliament. Policymaking draws upon of its recommendations. research literature, as well as from • The HoL is independent of the open calls for evidence and briefings Most HoC SCs focus more specifically on shadowing the work of government. HoC and currently has around 825 submitted by expert individuals and Members (peers). organisations. In addition to formal There are 19 departmental SCs in • The majority of members are avenues of consultation, individuals and the HoC, one for every government appointed for life by the Queen on organisations, such as learned societies, department, including the Science the advice of the Prime Minister can submit research and evidence to and Technology Committee which or the HoL Appointments Members unsolicited as a written or shadows the Government Office Commission. oral briefing. Individuals can also write for Science. There are also several to their local MP to express concerns or cross-departmental SCs, such as the • The HoL scrutinises bills that make suggestions for a parliamentary Environmental Audit Committee. have been proposed by the HoC question. When submitting evidence There are currently six major HoL and often reviews and amends informally, it is more likely to be well- SCs (including the HoL Science and them. Technology Committee) but ad hoc received if the issue is timely, makes • The HoL has little power to HoL SCs are sometimes set up to look well-supported recommendations and is prevent bills passing into law but at other issues, such as environmental related to an existing policy objective. can delay them and force the HoC protection. Joint Committees involve to reconsider their decision. Formal opportunities for science to Members of both houses working together in one committee. • While most members of the inform Parliament arise during the HoL belong to a political party, parliamentary scrutiny process,7 After a general election and before the some do not and are known as whereby Parliament examines ‘crossbench peers’. They include government legislation and policies, election of committee chairs can begin, the Speaker of the HoC writes to the a number of prominent scientists, often through Select Committees (SCs). such as Lord May and Lord Krebs. Other channels exist for scientists to newly elected party leaders, indicating engage with Parliament, including the numbers of chairs that might be the Parliamentary Office of Science allotted to each party. Hence, the and Technology (POST), All Party number of chairs and members of SCs Parliamentary Groups (APPGs), the HoC per party reflects the number of seats and HoL Libraries. SC inquiries and the party holds in Parliament. POSTnotes are perhaps the most direct and accessible routes for inputting In the HoC, SC chairs are first nominated evidence into the policy process, by MPs and then elected through a particularly for individual scientists. secret ballot, then remaining committee APPGs or the HoC and HoL libraries are members are appointed by their parties. more diffuse avenues. In the HoL, the House decides which Parliamentary Copyright. House of Lords Chamber ©

The British Ecological Society is a limited company, registered in England No. 01522897. Registered Charity No. 281213 members sit on each committee. The a POSTnote, Fellows consult widely number in a committee varies, from inside and outside of Parliament with FACT BOX about 10 to 18. Typically a committee of academia, learned societies, government 12 members. departments, industry, thinktanks and WHAT ARE THE DIFFERENT NGOs typically through interviews. TYPES OF BILLS? HOW CAN SCIENTISTS ENGAGE WITH Each briefing is reviewed in-house and SELECT COMMITTEES? peer reviewed by the external experts • The Government’s proposed Calls for evidence are accessible that were consulted prior to publication. legislative programme is online, with an option to receive email Recent examples include POSTnotes on formally announced in the notifications for new calls. Specific environmentally sustainable agriculture Queen’s Speech at the state invitations to submit evidence may and environmental crime. opening of Parliament. be issued to potential witnesses, • Public Bills are usually typically experts. Oral evidence HOW CAN SCIENTISTS ENGAGE WITH introduced by Government sessions are accessible to the public, POST? ministers and change the law with the committee putting questions There are a range of ways for scientists as it applies to the general to witnesses. These sessions are to engage with POST, such as: public. available online through Parliament • Submitting ideas for future • In contrast, Private Bills TV. 9 Committees can also appoint POSTnotes. are usually promoted by specialist advisers, often academics, • Applying for a POST fellowship. organisations, companies or either generally or to assist with specific • Contributing data and evidence individuals and change the inquiries. for POSTnotes that are currently in law as it applies to these progress. specific parties. A report is then written, published • Reviewing POSTnotes before • Private Bills rarely pass and made publicly available on the publication. beyond a second reading, as SC’s website. Academics and other • Attending and speaking at POST the Government generally researchers are increasingly interacting events in Parliament. allocates more Parliamentary with SCs, as highlighted in the time to Public Bills. A microplastics case study on the back Private Members’ Bill is page, and engagement with them has ALL- PARTY PARLIAMENTARY introduced by an MP who is been cited in Research Excellence 12 not in government.Hybrid Framework Impact case studies.10 GROUPS Bills combine some of the characteristics of Public and APPGs are informal cross-party groups. Private Bills. The legislative PARLIAMENTARY OFFICE OF Unlike SCs, they have no official status changes proposed would 11 within Parliament.They are run by affect the public as well as SCIENCE AND TECHNOLOGY Members but many involve external specific individuals or groups. stakeholders. APPGs can be country • Hybrid Bills often relate POST provides in-house analysis of based or subject-based. They allow to infrastructure projects, public policy issues relating to science informal discussion of issues and which are seen as of national and technology. POST aims to deliver new developments; they can invite importance but have local accessible overviews of relevant government ministers to speak at their consequences, including on scientific evidence from across the meetings, and help bring together the environment. Examples of natural and social sciences, placing the Parliamentarians and interested parties. current Hybrid Bills passing research findings in a policy context. through Parliament are those These overviews are published as four HOW CAN SCIENTISTS ENGAGE WITH relating to High Speed Rail 2 page summaries, known as POSTnotes. APPGS? (HS2). These are usually produced proactively, Channels exist for campaign groups, giving Members clear and concise charities and NGOs to join APPGs. information about issues before they These groups often pay to become reach the top of the political agenda members of APPGs or provide a and to support evidence-informed secretariat role. APPGs offer an parliamentary scrutiny. This horizon- opportunity for organisations in the field scanning role is intended to identify key to become active in discussions, present emerging issues with a basis in science relevant evidence and potentially and policy of interest to Members in a influence politicians. Members of the timely manner. public can also attend APPG meetings by asking the Secretariat to join the Ideas for POSTnotes are currently mailing list. gathered by POST staff from external organisations and researchers. Staff then propose these ideas to the POST board, PARLIAMENT LIBRARIES13,14 which consists mainly of Members, who choose which should be become The HoC and the HoL Libraries provide POSTnotes. POST is assessing how the information and research services, transparency of this process can be mainly through a confidential and improved. tailored enquiry service for individual requests from Members, their staff and Most POSTnotes are written by Fellows, staff of the House. They also provide who are PhD students funded by reading rooms, face-to-face enquiry Research Councils, learned societies points and a library loans service. (BES funds a POST Fellowship) or Both libraries produce briefing papers charities. In the process of producing Barry Gardiner MP with Dr Claire Carvell. Biodiversity CEH Science/Heather Lowther.

on specific subjects often related to ©

The British Ecological Society is a limited company, registered in England No. 01522897. Registered Charity No. 281213 legislation currently passing through on the marine environment and how Parliament. Briefing papers are usually they posed a risk to human health FACT BOX produced when several enquiries are through their accumulation in fish and received about a similar topic or during seafood. Besides publishing scientific WHAT ARE PARLIAMENTARY the second reading of a Bill, but are articles, the research group made QUESTIONS? also produced more proactively when efforts to communicate their work the libraries identify an ongoing issue through non-academic publications • Parliamentary questions are particularly relevant to Members. such as reports by NGOs. These articles one of the principal methods In their briefings, the libraries’ research brought the issue closer to the public by which Members hold the services highlight key scientific and other interested stakeholders. The Government to account. Members evidence and stakeholder views. Both media picked up on their work and a can ask questions either to seek libraries also produce debate packs campaign against microplastics began. information from a government before any non-legislative Parliamentary The researchers, however, remained department, or to press a debates lasting longer than an hour, focussed on establishing the scientific Secretary of State to take a collating published documents on evidence base. particular action. the topic in question and adding any relevant updates that have occurred Their research findings helped a large • Members can submit questions since the documents were published. collaborative attempt to get for answer either orally or In addition, the HoC library organises microplastics included in a 2013 HoC in writing. Unlike the HoC, talks by subject specialists and external Science and Technology Committee oral questions in the HoL are speakers; it also publishes a blog: www. inquiry into water quality, and their addressed to the Government secondreading.uk. work was later cited in two POSTnotes: as a whole, not to particular ‘Trends in the Environment’ and ‘Marine government departments or Microplastics’, published in 2016. ministers. Submitted questions HOW CAN SCIENTISTS ENGAGE WITH must conform to certain rules PARLIAMENTS LIBRARIES? Around the same time a public and follow specific processes petition of over 300,000 signatures The mechanisms of briefing papers and and Ministers are given time to was delivered to the Government, debate packs demonstrate the need collate information before they calling for a ban on microplastics in for researchers and other stakeholders are required to respond. cosmetics. The HoC Environmental to publish evidence and on key policy- Audit Committee (EAC) also started relevant scientific questions in a public • Members must declare any an inquiry into the ‘Environmental domain, for example through peer relevant interests when Impacts of Microplastics’. In addition, reviewed articles, press releases and submitting a question, whether the NERC fellow that drafted the Marine public fora. By ensuring that their or not they have been declared Microplastics POSTnote privately briefed research outputs are publicly available, in the Register of Members’ the EAC at the start of the inquiry. scientists increase the chances of the Financial Interests. All HoL and HoC library finding, using parliamentary questions are During the EAC inquiry MPs and citing their work. HoC unlike printed in the official Report of received written and oral evidence HoL employs specialists, including proceedings (Hansard) and are submissions from a range of experts science and environment specialists to available on Parliament’s website and stakeholders. Professor Galloway develop briefings such as the bees and at www.parliament.uk. gave evidence at one of the hearings. neonicotinoids briefing.15 Her experience of shadowing a parliamentarian, through the Royal REFERENCES Society’s ‘Week in Westminster’ scheme, 1. All-Party Parliamentary Groups CASE STUDY along with media training from the 2. Conventions on the relationship Science Media Centre, allowed her to between the House of Commons and MICROPLASTICS BAN: A CASE STUDY understand the needs of her audience House of Lords OF HOW SCIENTIFIC RESEARCH and how to deliver the message 3. First Reading (Commons) INFORMED POLICY DECISION MAKING effectively. 4. First Reading (Lords) 5. Consideration of Ammendments 6. Royal Assent Microplastics ̶ plastic fragments less Professor Galloway also presented 7. White, H (2015) Parliamentary than 5mm in size ̶ are a widespread evidence to the United Nations to help Scrutiny of Government. The Institute form of ocean waste that come from a formulate international guidance on of Government. 8. Select Committees variety of sources including industry, preventing and reducing microplastic 9. Parliament TV cosmetics and synthetic textiles. The pollution and its effects. Soon 10. REF Case Study: Forest-climate plastics and their additives can harm afterwards, the Government proposed research results in improved forest wildlife and accumulate in seafood. a ban and launched a consultation management 11. Parliamentary Office of Science and looking at both the implications of this Technology A research group at Exeter University, decision as well as what more could be 12. All-Party Parliamentary Group on led by Professor Tamara Galloway, done to prevent other sources of plastics Science and Technology in Agriculture had researched the distribution of entering the marine environment. 13. House of Commons Library microplastics in the ocean, their impact 14. House of Lords Library 15. HoC Briefing on Bees and Neonics BRITISH ECOLOGICAL SOCIETY POLICY GUIDES Policy Guides will provide an information resource for BES Danae Dodge, Katherine Drayson, Amy Fensome, Miriam Grace, members, focusing on the policymaking process in the UK and the Helen Hicks, Rory O’Connor, Simon Potts, David Rose, James various avenues through which scientific evidence can be used to Stewart, Tamara Galloway, Maria Daniela Tobar Abarca and inform policy. Lindsay Walker. The lead authors of this guide were BES interns Rick Parfett and Contact: British Ecological Society, Charles Darwin House, Sam Leigh, they were kindly supported by BES members, including 12 Roger Street, London, WC1N 2JU, United Kingdom.

The British Ecological Society is a limited company, registered in England No. 01522897. Registered Charity No. 281213