Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 FUTURE STRATEGY FOR FSA SCIENCE Report by Professor Guy Poppy, FSA Chief Scientific Adviser (CSA) For further information contact Patrick Miller on 020 7276 8277, email [email protected] 1 SUMMARY 1.1 The Board is asked to agree the framework for the FSA Science, Evidence and Information Strategy 2015-20 (SEI Strategy) and that the framework should be used to develop the delivery plan for the SEI Strategy. 2. INTRODUCTION 2.1 The FSA Strategy sets ambitious goals for FSA’s work to protect consumers’ interests in relation to food. 1 We have to fulfil that ambition in the face of increasingly complex challenges to the wider food system, and of resource pressures that mean we must do more, and better, with less. 2.2 The FSA Strategic Plan makes clear that effective use of science will be crucial to this. 2 FSA has a good record as a science- and evidence-based organisation, but to meet these new challenges we will need to raise our game. Our use of science will need to be focused, forward-looking, innovative and connected, making better use of data and other evidence to get the maximum value, and deliver impact and benefits for consumers and to develop our capability to do this in the longer term. 2.3 The SEI Strategy will set out how we will do this. The vision and framework for the SEI Strategy set out below and in Annex A will shape the development of the specific programmes of work that will form the delivery plan for the SEI Strategy. We will return to the Board to discuss the Delivery Plan, later in 2015. Annex A includes examples of work that illustrate some likely areas of focus for the Delivery Plan. 3. STRATEGIC AIMS 3.1 Effective use of science, evidence and information underpins all of FSA’s strategic aims, as articulated in the FSA Strategy 2015-20. The SEI Strategy sets out how we will use science to help to shape and evaluate policy and effective regulation, identify and target effective communication and engagement, and optimise our surveillance and operational delivery so that have the greatest impact. 1 2 http://www.food.gov.uk/sites/default/files/fsa141105a.pdf FSA Board paper FSA 15/03/04 and Annex. 1 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 4. EVIDENCE 4.1 The paper draws on evidence from a programme of engagement, discussion and analysis across all parts of the FSA, with our expert advisors, and with a wide range of external stakeholders. It is also informed by advice and analysis by GACS and others on data, and work across government on potential impacts of emerging technologies. 5. DISCUSSION 5.1 Considering the ambition set by the FSA Strategy, our vision for our science is that it is: • Focused on the most significant risks and challenges to consumers’ current and future interests, and how we can make the biggest impacts ourselves or by supporting consumers and others to do so • Forward looking and innovative to identify new issues and build our capability to do more and better with less • Connected across programmes, disciplines and data to gain added value and new insights • Outward-looking to harness the power of working with and through others in partnership • Supported to develop our own skills and capabilities and our engagement across the FSA and with the wider science community. 5.2 We have developed a framework for the SEI Strategy that reflects this vision by applying two ‘lenses’: the areas of science we will need to develop and apply (the ‘what’) and the way we develop and conduct our science (the ‘how’). These are summarised below and discussed in more detail in Annex A. We will add detail on the specific programmes and pieces of work under each theme as we develop the delivery plan for the SEI Strategy. The science we will need to develop and apply 5.3 To ensure consumers are protected from risk we need to understand which risks to target, what level of protection is appropriate and achievable, and which approaches are most effective for outcome-focused policy and regulation. 5.4 To support consumers to make informed choices, we need to find new ways to communicate the evidence base and connect with consumers and businesses, working with them and with others in government and outside to understand what helps people take informed decisions, and what other approaches are effective in influencing behaviour and supporting practices that lead to benefits for consumers. 5.5 We also need to understand when our desired outcomes will be achieved more effectively though regulation and when through approaches based on behaviour change and supporting informed decisions. 2 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 5.6 We need to understand what food futures might look like, and where consumers’ interests lie in these. We need horizon scanning to be more effective in identifying and anticipating new and emerging risks and to exploit the potential of new technologies to deliver benefits for consumers. And we need to build our understanding of the food system as a system, and use this to inform our work. 5.7 Four themes emerge from this analysis: i. Understanding risks and how to rank them, so that we can target our work on effective consumer protection This includes; assessment of individual risks; tools and evidence to compare and rank risks and interventions; frameworks for consistent, transparent, evidence -informed decisions on risk; new ways to identify and control risk (for example, genomics and big data; and understanding how risks and the most effective suite of controls may vary for different parts of the population). ii. Intelligent and shared use of data, information and its analysis, to identify new risks and to develop targeted and effective surveillance and regulation This includes: extracting maximum value from our use of existing data (including food surveillance), wherever it is available and fit for purpose; use of new data sources, partnerships, and tools (for example, econometrics); co-ordinated targeted surveillance; big data and social media to identify existing and new risks and early signals (for example, foodborne disease outbreaks), and to target advice, regulation and enforcement. iii. Understanding consumers and food businesses and harnessing their power to support behaviour change and build and spread good practice This includes: robust data and analysis on consumers, businesses and the food system; harnessing the power of consumers and social media to engage and support consumer decisions (for example, citizen science to support and enhance food hygiene information); understanding food futures (food system information and modelling; research with consumers on what food futures look like and where their interests lie) iv. Learning from what works to maximise positive impacts, through our own work and our work with others This includes: testing regulatory and policy options to identify which work best (for example though pilots and harnessing citizen science) with feedback to improve our and others’ performance); understanding and testing where regulation works best and where campaigning, supporting behaviour change and informed decisions work better; tools to evaluate and compare impact and benefit across different policy and regulatory areas; partnerships to share information and tools to understand impact. 3 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 The way we conduct our science 5.8 We need to ensure that our use of science is fit-for-purpose, effective and efficient, open, and has integrity. These are underpinning conditions for success and apply across all our work. 5.9 We have identified four themes for our work to deliver this vision: i. Maintaining and building the science skills and capabilities we need This includes: skills and gaps analysis; developing a science skills strategy; looking at the longer-term skills pipeline, in partnership across government; secondments and exchanges; cross-profession networks and support) ii. Assuring the quality of our science and evidence and its application so it has value for us and legitimacy for others This includes: developing a QA framework across all our science; separation of provision of science input and its assurance; developing frameworks for effective and transparent use of evidence in decisionmaking, and supporting and assuring them in practice. iii. Use, communication and knowledge transfer of science, evidence and information, for openness, engagement and effective use and impact by FSA and others This includes: clear pathways and plans for use and impact for all our own science work; sharing our data and information in ways others can use; facilitating sharing and pooling of others data and information; engagement iv. Delivering ambitious objectives and cross-cutting impact though strategic science partnerships This includes: joint programmes with Research Councils and other funders, building on our successful existing science partnerships3, including with Defra and Public Health England and the equivalent bodies in Wales and Northern Ireland, with Local Authorities and enforcement partners, and with industry and with consumers and groups that represent them, to support delivery of the overall strategy; and working across all parts of FSA to find ways to work more effectively. 5.10 Delivering a science programme that is innovative and addresses future capabilities as well as nearer-term issues will be challenging. To support this we are creating a distinct Strategic Evidence Programme, led by Guy Poppy as CSA, with a focus on building strategic partnerships and futureoriented work, which will start to come on stream from April 2015. 3 For example: Global Microbial Identifier (on next generation sequencing); Cross-Research Council network IT as a Utility+ on use of data; Food Research Partnership, Global Food Security network ESRC food-energy-environment nexus network . 4 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 6. IMPACT 6.1 The SEI Strategy will ensure we continue to apply robust evidence to understand, optimise and evaluate the impact of all our work. It will help us develop a range of metrics and approaches, and to share with and learn from others, to ensure we focus on delivering impact which will deliver food we can trust. 7. CONSULTATION AND CONSUMER ENGAGEMENT 7.1 The development of the SEI Strategy is informed by an extensive programme of engagement with FSA people and science and other stakeholders, and by the wider engagement to develop the FSA Strategy and Strategic Plan. This programme is outlined in Annex 2. 8. DEVOLUTION IMPLICATIONS 8.1 No direct implications. The SEI Strategy reflects the challenges and opportunities for FSA and its science partners across England, Wales and Northern Ireland and globally, including how we work effectively with Food Standards Scotland and other partners. 9. CONCLUSION AND RECOMMENDATIONS 9.1 The Board is asked to agree the framework for the FSA Science, Evidence and Information Strategy 2015-20 (SEI Strategy) and that the framework should be used to develop the delivery plan for the SEI Strategy. 5 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 Annex A: Outline of the SEI Strategy INTRODUCTION In 2014 the Board approved the strategy for the FSA for 2015-2020. In developing the strategy we reviewed a large amount of evidence and engaged with consumers, colleagues within the FSA, and a very wide range of stakeholders (academic and scientific, consumer organisations, industry representatives, local authorities, and other government departments and NGOs), to identify the key themes that the FSA would use to inform its planning for the period 2015-2020. A number of critical themes emerged that inform our strategic plan. The most important relates to our unique role within government as set out in our founding legislation: “The main objective of the Agency in carrying out its functions is to protect public health from risks which may arise in connection with the consumption of food (including risks caused by the way in which it is produced or supplied) and otherwise to protect the interests of consumers in relation to food.” Focusing on this purpose, set for us by Parliament, and having considered the likely environmental factors that face the UK over the next strategy and beyond, the Board agreed to refresh and reinvigorate the FSA pledge: We will put consumers first in everything we do. In consultation with consumers we identified three consumer rights to underpin our work: • • • The right to be protected from unacceptable levels of risk The right to make choices knowing the facts The right to the best food future possible 6 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 The FSA’s strategic outcomes, against which we will measure our impact, are aligned to the definition of consumer interests in relation to food, as set out in the strategy: • • • • Food is safe Food is what it says it is Consumers can make informed choices about what to eat Consumers have access to an affordable healthy diet, now and in the future FSA Strategic Plan 2015-20 In formulating our strategy, the Board recognised that the food system is going to come under increasing pressure over the next ten to twenty years, and that we cannot be sure at what pace changes will happen. So they agreed an approach to the plan for 2015-2020 that focuses on dealing with the challenges of today while seeking to build our readiness for the threats and opportunities of the future. The Strategic Plan identifies the major themes that will inform how we will set about building the organisation and its capabilities to achieve the purpose and objectives that are set out in the strategy. It makes clear that we will continue to develop, apply and openly communicate a robust evidence base in our work to protect consumers’ interests, as a critical underpinning to all we do, and includes a specific theme on science and evidence: We will use science, evidence and information both to tackle the challenges of today, and to identify and contribute to addressing emerging risks for the future. 7 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 USING SCIENCE, EVIDENCE AND INFORMATION TO DELIVER FOOD WE CAN TRUST Aims and vision The FSA Strategy sets a clear focus on putting the consumer first, and ambitious goals for FSA’s work to protect consumers’ interests in relation to food. We have to fulfil this ambition in the face of increasingly complex challenges to the wider food system, and of resource pressures that mean we must do more, and better, with less. The Strategy and the Strategic Plan make clear that effective use of science will be essential to underpin this, and to evaluate progress and drive continual improvement. FSA has a good record as a science- and evidence-based organisation, but to meet these new challenges we will need to raise our game. The SEI Strategy shows how we will do this. The vision for our science is that it is: • • • • • Focused on the most significant risks and challenges to consumers’ current and future interests, and how we can make the biggest impacts ourselves or by supporting consumers and others to do so Forward looking and innovative to identify new issues and build our capability to do more and better with less Connected across disciplines and data to gain added value and new insights Outward-looking to harness the power of working with and through others Supported to develop our own skills and capabilities and our engagement across the FSA and with the wider science community Priority themes and activities Building on this analysis, we have developed a framework for the SEI Strategy which considers our needs through two ‘lenses’: the areas of science we will need to develop and apply (the ‘what’) and the way we develop and conduct our science (the ‘how’). 8 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 The science we will need to develop and apply Putting consumers first To put consumers first we have to understand where the risks, detriments and benefits to consumers arise in the food system, and what the wider interests of consumers are. We also need to understand the differences between the food issues and interests facing different groups of consumers. 1. Protection from risk To ensure consumers are effectively protected from risk we need to understand which risks to target and what approaches are most effective. This will be founded in robust, evidence- based risk assessment of where and how risks to consumer health (or other detriments) arise - which remains a core of our science and our approach as a consumer protection organisation. We will need to understand how risks affect different groups, and what measures to reduce and control risks may be available to and effective for different groups and contexts. Further than this, we will also require evidence on what level of protection is appropriate and achievable, informed by evidence on what different groups of consumers, food businesses and others feel about what risks are acceptable and about the types of tools and measures that might be used to manage these risks. We will also need to understand and to test what works most effectively in practice - so we can deliver on our policy and regulatory principles of focusing on outcomes and taking an open minded but evidence-based approach to identifying and promoting the mechanisms that work best to achieve those outcomes. 2. Supporting informed decisions To support consumers to make informed decisions, we need to continue to develop and communicate the evidence base - not just our own information but drawing on the full body of evidence and information, including new sources and types of data. We also need to connect with consumers and businesses, and to work with them and with others in government and outside (such as campaign and representative groups) to understand what helps people take informed decisions and what other approaches are effective in influencing behaviour and supporting practices that lead to benefits for consumers. 9 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 We also need to understand when our desired outcomes will be achieved more effectively though regulation and when through approaches based on behaviour change and supporting informed decisions. 3. The food future Our work on the food future needs to be informed by an understanding of what food futures might look like, informed by effective horizon scanning and strategic analysis, and building a capability to be more anticipatory and predictive in identifying new and emerging risks. We will also need to understand and work with others to exploit the potential for new technologies to open up new and more effective ways to deliver benefits for consumers and the food system. We need to work with consumers to build an understanding of what food futures might involve and what we and they would want to try to support, or avoid, in influencing those futures. Underpinning this, we need to build our understanding of the food system as a system, and how use this to gain insights that can help us target our work effectively. Four themes emerge from this analysis 1. Understanding risks and how to rank them, so that we can target our work on effective consumer protection This includes: assessment of individual risks; underpinning core data on patterns and trends in food consumption and food practices by UK consumers; modelling to understand impact of changes on risks (for example: Listeria and ageing population; obesity/longevity and chronic contaminants); reviews of the evidence base in key areas (e.g. systematic review of antimicrobial resistance risks in the food chain; reviews of the evidence base in relation to Campylobacter and to foodborne viruses); tools and evidence to compare and rank risks and interventions; frameworks for consistent, transparent, evidence informed decisions on risk; understanding new and (re)emerging risks; applying new data, technologies and partnerships (including on genomics) to provide radically better capabilities to understand and to manage existing and new risks in the future; research and engagement with consumers (and businesses) on what level of protection is appropriate in different risks and contexts. 10 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 2. Intelligent and shared use of data, information and analytics, to identify new risks and to develop targeted and effective surveillance and regulation This includes: extracting maximum value from our use of existing data (including food surveillance), wherever it is available and fit for purpose; use of new data sources, partnerships, and tools (for example, econometrics); coordinated targeted surveillance; big data and social media to identify existing and new risks and early signals (for example, foodborne disease outbreaks), and to target advice, regulation and enforcement; understanding and modelling of the food system as a system, to help us to understand where and how we can best achieve impact. 3. Understanding consumers and food businesses and harnessing their power to support behaviour change and build and spread good practice This includes: robust data and analysis on consumers, businesses and the food system; harnessing the power of consumers and social media to engage and support consumer decisions; citizen science; development and testing of behaviour change models and further work on consumer attitudes and practices, including on evidence that inform scope for segmented/flexible approaches. 4. Learning from what works to maximise positive impacts, through our own work and our work with others This includes: testing regulatory and policy options to identify which work best (for example though pilots and harnessing citizen science) with feedback to improve our and others’ performance); understanding and testing where regulation works best and where campaigning, supporting behaviour change and informed decisions work better; tools to evaluate and compare impact and benefit across different policy and regulatory areas; partnerships to share information and tools to understand impact. 11 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 The way we conduct our science We need to ensure that our use of science is fit-for-purpose, effective and efficient, open, and has integrity. These are underpinning conditions for success and apply across all our work. We have identified four themes for our work to deliver this. 1. Maintaining and building the science skills and capabilities we need This includes: skills and gaps analysis; developing a science skills strategy; looking at the longer-term skills pipeline, in partnership across government; secondments and exchanges; cross-profession networks and support). 2. Assuring the quality of our science and evidence and their use so they have? value for us and legitimacy for others This includes: developing a QA framework across all our science; separation of provision of science input and its assurance; developing frameworks for effective and transparent use of evidence in decision-making, and supporting and assuring them in practice. 3. Use, communication and knowledge transfer of science, evidence and information, for openness, engagement and effective use and impact by FSA and others This includes: clear pathways and plans for use and impact for all our own science work; sharing our data and information in ways others can use; facilitating sharing and pooling of others data and information; engagement. 4. Delivering ambitious objectives and cross-cutting impact though strategic science partnerships This includes: joint programmes with Research Councils and other funders, building on our successful existing science partnerships4, including with Defra and Public Health England and the equivalent bodies in Wales and Northern Ireland, with Local Authorities and enforcement partners, and with industry and with consumers and groups that represent them, to support delivery of the overall strategy; and working across all parts of FSA to find ways to work more effectively. 4 For example: Global Microbial Identifier (on next generation sequencing); Cross-Research Council network IT as a Utility+ on use of data; Food Research Partnership, Global Food Security network ESRC food-energy-environment nexus network . 12 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 Strategic Evidence Programme Balancing this more innovative and future-oriented work with more immediate demands will be challenging. To help manage this we will manage the majority of the strategic work in a new Strategic Evidence Programme, led and directed by the FSA Chief Scientific Adviser, with a focus on building strategic partnerships and future-oriented work. This programme will have a distinct budget that allows work with other funders over a period of more than one year, and will start to come on stream in 2015. Prioritising and evaluating our science work Our science programme will need to balance a number of types of activity, which have different drivers and outcomes. We will need to ensure we have clear criteria for selecting and prioritising our science work and for evaluating its success. All projects and programmes will need to have a clear rationale, a pathway to impact and a plan to realise this, and clear ways of evaluating success. There are three main categories of work and each will have distinct but comparably rigorous frameworks for evaluation. • Policy and delivery-focused Work to inform or evaluate policy, regulatory or delivery objectives in the FSA Strategy 2015-20. This needs to be relevant and timely with an effective route to impact. • Statutory and underpinning Work that we are required to do by statute (e.g. some official surveillance) or so fundamental that it is effectively non-discretionary. This must meet the core requirement in an efficient way and maximise added value by links and other uses of data. • Strategic science Objectives are longer-term, cross-cutting and focused on developing future capabilities, including better or radically different ways of doing things in the future, and high-risk/high gain projects and strategic partnerships. Evaluation will need to reflect this. 13 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 OUR SCIENCE PROGRAMME FOR 2015-20 The framework set out above will shape our science programme for the next five years, ensuring that the programmes of work and individual projects have a clear link to and impact on the core elements of the FSA Strategy. Our detailed programme will be set out in the SEI Strategy Delivery Plan. This will be appended to the SEI Strategy and will set out the main pieces of work with their timelines and milestones. The Delivery Plan will be regularly reviewed and updated to reflect progress on our own work and that of others, and of wider developments in FSA Strategy and the wider environment. [Please note: the Delivery Plan is being developed through engagement across the FSA and with stakeholders. We will return to the Board later in 2015 for a discussion on the Delivery Plan. In the meantime, Figure 1 shows how the key building blocks of the science programme map onto the key themes of the SEI Strategy and FSA Strategy, and includes some illustrative examples of possible key pieces of work.] 14 Food Standards Agency Board Meeting – 25 March 2015 FSA 15/03/05 Key areas of science Figure 1: Key elements of the science programme by SEI Strategy and FSA Strategy theme [Note: illustrative examples] Protection from risks Supporting informed decisions Food futures Risk Understanding and ranking risks to target effective consumer protection Data and assessment on where and how risks arise; NDNS, systematic reviews, SACs Tools to rank and compare risks Evidence to inform decisions on setting an appropriate level of protection Risk lexicon for clear communication on risk Frameworks for consistent, transparent decisions on risks and priorities for action FSA approach to precaution Internet of Things/automated systems and new/rapid methods for food system controls Horizon scanning for new risks (e.g. HS partnership with Defra; impact of new technologies) Genomics for better identification, attribution and control of risks Data Intelligent use and sharing of data to identify risks and target surveillance and regulation Better use of existing and new data to identify and understand risks Strategy for effective, targeted surveillance Sharing and connecting data to inform decisions by consumers, industry, regulation. Use of social media to inform and engage with consumers (e.g. FHRS on trip advisor/yelp etc.) Real-time/predictive analysis (e.g. social media to spot outbreaks) Citizen science (e.g. social media to inform targeted inspection) Partnerships with e.g. Alan Turing Centre What works Assessing and realising impact and testing new ways to deliver Testing regulatory and policy options, and levels/impacts of compliance, with feedback to improve our and others’ performance Piloting, testing and evaluation of our implementation. (e.g. building on FHRS evaluation; trials of different interventions for effectiveness and flexibility/segmentation) New sources and combinations of data to model and measure impact Tools to measure benefit (e.g. use of QALYs, DALYs, WTP) Harnessing power of consumers and businesses for behaviour change and good practice Food and You: key data on views and behaviours Understanding views and behaviours of consumers and industry in relation to risk and regulation Use of data and analytics and engagement to better understand behaviours and decisions Citizen science to empower consumers to inform policy and drive change Understanding the food system as a system to inform and target work Evidence on what food futures look like and engagement on where consumer interests may lie How we do conduct our science Maintaining and building science skills and capabilities Assuring the quality of our science and its use Communication and knowledge transfer for use and impact Cross-cutting impact through strategic partnerships 15 Food Standards Agency Board Meeting - 25 March 2015 FSA 15/03/05 Annex 2 Summary of process and timelines for development of SEI Strategy with actions completed and future actions Preliminary Science input to FSA Strategy FSA staff, CSA, GACS and SACs Throughout Phase one 2014 September October December 2015 January Feb-March Feb/March (April) March Phase two April-May May-June July Phase one: Develop framework of aims, principles, themes Engagement with FSA, SACs and science stakeholders Phase two Develop detailed content, priorities and actions Further engagement with stakeholders, new government, key partners on specific Fit with FSA Strategy, Strategic Plan and supporting strategies Engagement with FSA Strategy process to ensure science informs the Strategy and to start to analyse the science needs resulting from the strategy Framework High-level principles and themes; ideas for key pieces of work Board discussion on Future Strategic Science CSA workshop with FSA staff on strategic science EMT discussion on horizon scanning and strategic analysis GACS discussion on high-level themes and aims Establishment of GACS Working Group on Science Strategy FSA Science Professions workshop sessions on skills and SEI Strategy FSA Senior Leadership Team workshop sessions on SEI strategy and other supporting strategies CSA/DSER workshop on strategic evidence programme GACS Working Group 1st meeting Workshops for FSA colleagues in London, York, Belfast, Cardiff and Aberdeen. Key local stakeholders attending too. Large stakeholder workshop led by Guy Poppy, London (19th) Board update and input on framework (25th) Board discussion on Strategic Plan (25th) SSRC and GACS discussions on framework Detailed content for Delivery Plan: Priorities, activities, partnerships, timings Further development of content in discussion with FSA colleagues, stakeholders and GACS WG GACS Working Group, FSA and key stakeholders on content Publication of SEI Strategy Agreement and publication of Delivery Plan 16
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