4. The Changing Environmental Context and
Continuing Need for the Commission's Functions4.1 As we noted in Chapter 1, there was agreement among interviewees that the context of environmental policy had changed significantly over the 29 years since the Commission was set up. The most significant changes were seen as
- the increasingly international and even global nature of much environmental policy development;
- the shift in focus from pollution control to the much broader compass of sustainable development, and the integration of environmental objectives into other areas of Government policy;
- the continuing growth of environmental policy making capacity within Government Departments, including the creation of environmental divisions within DTI and MAFF;
- the creation of a variety of newer advisory bodies on environmental issues including the Government Panel on Sustainable Development, the Round Table on Sustainable Development, the Advisory Committee on Business and the Environment, and the Parliamentary Select Committees;
- the development of environmental education within schools and colleges, both reflecting and stimulating public concern about environmental issues.
4.2 We asked interviewees whether in the light of these changes, the Commission's purpose was now superfluous, or could be better carried out by other bodies.
4.3 One response focused on the Commission's role in the institutional framework, and the importance for the nation of having an independent means of drawing attention to environmental issues that governments would rather not address. A contrast was drawn with the performance of governments left to dictate their own environmental agenda, which in the cases of Eastern Europe and Russia had proved disastrous. The Commission was seen as part of the checks and balances that formed a necessary part of any pluralist system. In other countries (notably the USA and India) the check/balance role was often fulfilled by institutions such as the judiciary, but this was thought to be inappropriate for the UK. Therefore, as several commentators observed " if the Commission did not exist, we would need to invent it".
4.4 The increasing influence of European and global politics on environmental policy was for many an argument for retaining a body capable of producing innovative thinking. There was a strong feeling that the Commission's work had had significant influence in Europe, notably in the development of IPPC, and that well-timed reports could usefully strengthen the UK's negotiating position.
4.5 The importance of an independent expert voice was further stressed in a different context. Some interviewees believed that coverage of environmental issues by the tabloid press and some environmental groups made it almost impossible to put across balanced or sophisticated messages about risk. In this context, the credibility and authority of the Commission was seen as vital to help raise the level of debate and awareness of real complexities. In support of this argument, reference was made to research into the level of public confidence engendered by various groups or organisations: this had apparently shown that the Commission commanded greater public trust than government scientists or enforcement agencies.
4.6 The creation of environmental policy units within Departments, whilst welcomed, was not generally seen as eliminating the Commission's role. By contrast some considered the multiplicity of environmental units increased the risk of fragmentation of approach that the Commission was originally set up to overcome. If joined up environmental policy making was to be a reality, then they considered it important to have somebody outside the government machine able to take a broad look at complex issues and to articulate the tensions and opportunities in the relationship between environmental protection and economics/social issues that Departments might be unable to make for themselves. On this view the Royal Commission was seen as ideally placed to help translate into practice the principle set out in the Modernising Government White Paper - 'making policy strategically, for the long-term and linking across government to tackle problems in a common and joined-up way'.
4.7 A minority view among interviewees and written consultees saw the Commission as increasingly redundant, as its role was overtaken by others following institutional change in the UK and the global policy community. It was suggested that the Commission had had a valuable part to play in producing reports on key issues covering pollution of air, water and land, and had made a major contribution to developing the principles of integrated pollution control, but that with this important groundwork now done and the appropriate institutional frameworks in place the Commission could be wound up. The credibility of international organisations such as IPCC was seen as indicative of the direction in which the UK should be developing - providing high level contributions to multi-national policy making.
4.8 We note that the Commission reviewed its own role in 1992-3 taking account of similar factors to those listed in 4.1. It concluded there was a continuing need for objective advice to be readily available to government from an independent body with a scientific basis. It produced a checklist of criteria for selection of topics for study, aimed at sharpening the focus and relevance of the Commission's work. These are reproduced in the Commission's Guidelines for the Conduct of Studies (Annex 10, paras 14-15).
4.9 In the context of constitutional devolution, the Scottish Office have indicated that they attach a high value to the Royal Commission's contribution to the fundamental underpinning for environmental policy making. The Commission has been declared a cross-border public authority under the Scotland Act, with its reports being presented by the Queen to both Parliaments.
4.10 Conclusion: The increasing maturity and complexity of today's environmental agenda is seen by most consultees as heightening the needs of government and the policy community for high quality advice and joined-up strategic thinking to assist long term policy development. The Royal Commission is well placed to help translate into practice the principle set out in the Modernising Government White Paper 'making policy strategically, for the long term and linking across government to tackle problems in a common and joined-up way'.
4.11 If the conclusion to this discussion is that there is still a need for the Commission's functions, the next question concerns whether the Commission is best placed to discharge them, whether some other organisation or format might do so more effectively or provide better value for money. Chapter 5 looks at this in detail.
Published 19 April 2000 / Updated 11 May 2000
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