Consensus reports as scientific facts for government policy?

Over fifty years ago President Dwight D. Eisenhower solemnly warned of the danger to our democracy if a "scientific-technological elite" ever took control of public policy...

Akin to, and largely responsible for the sweeping changes in our industrial-military posture, has been the technological revolution during recent decades.

In this revolution, research has become central, it also becomes more formalized, complex, and costly. A steadily increasing share is conducted for, by, or at the direction of, the Federal government.

Today, the solitary inventor, tinkering in his shop, has been overshadowed by task forces of scientists in laboratories and testing fields. In the same fashion, the free university, historically the fountainhead of free ideas and scientific discovery, has experienced a revolution in the conduct of research. Partly because of the huge costs involved, a government contract becomes virtually a substitute for intellectual curiosity. For every old blackboard there are now hundreds of new electronic computers.

The prospect of domination of the nation's scholars by Federal employment, project allocations, and the power of money is ever present – and is gravely to be regarded.

Yet, in holding scientific research and discovery in respect, as we should, we must also be alert to the equal and opposite danger that public policy could itself become the captive of a scientific-technological elite.

[Entire speech is below.]

Now consider...

"The voice of science: let's agree to disagree"

by

Daniel Sarewitz

October 5th, 2011

naturenews

When scientists wish to speak with one voice, they typically do so in a most unscientific way: the consensus report. The idea is to condense the knowledge of many experts into a single point of view that can settle disputes and aid policy-making. But the process of achieving such a consensus often acts against these goals, and can undermine the very authority it seeks to project.

My most recent engagement with this form of penance is marked this week with the release of Geoengineering: A National Strategic Plan for Research on Climate Remediation. Sponsored by the Bipartisan Policy Center in Washington DC, the report reflects more than a year of discussion between 18 experts from a diverse range of fields and organizations. It sets out, I think, many valuable principles and recommendations.

The discussions that craft expert consensus, however, have more in common with politics than science. And I don't think I give too much away by revealing that one of the battles in our panel was over the term geoengineering itself.

This struggle is obvious in the report's title, which begins with 'geoengineering' and ends with the redundant term 'climate remediation'. Why? Some of the committee felt that 'geoengineering' was too imprecise; some thought it too controversial; others argued that it was already commonly used, and that a new term would create confusion.

I didn't have a problem with 'geoengineering', but for others it was a do-or-die issue. I yielded on that point (and several others) to gain political capital to secure issues that had a higher priority for me. Thus, disagreements between panellists are settled not with the 'right' answer, but by achieving a political balance across many of the issues discussed.

This political essence of consensus leads to other difficulties. Ask a panel to address broad questions — future directions for a field, say, or ways to improve a government programme — and the recommendations that come back are typically bland and predictable. New and controversial ideas are inherently difficult for experts to agree on. In the absence of consensus, the default position is simply to call for more research — the one recommendation that most scientists can get behind.

Sometimes, expert panels are asked to find consensus on narrow technical questions at the heart of public controversies. The hope is that a unified scientific voice will resolve the dispute, but it rarely works out that way. In 2000, the US National Academies assembled climate experts to resolve discrepancies in surface and satellite climate temperature records, as if this would help to settle the political debate. A decade on, it is clear that the goal was not met.

And in 2009, at the height of the US debate on health-care reform, the US Preventive Services Task Force released a consensus report on the risks and benefits of mammograms. Rather than clarifying anything, the key recommendation — that mammograms were being overutilized — became instant ammunition for reform opponents, who viewed it as a threat to patient autonomy.

The fuss over mistakes in the 2007 reports by the Intergovernmental Panel on Climate Change highlights a related problem: a claim of scientific consensus creates a public expectation of infallibility that, if undermined, can erode public confidence. And when expert consensus changes, as it has on health issues from the safety of hormone replacement therapy to nutritional standards, public trust in expert advice is also undermined.

The very idea that science best expresses its authority through consensus statements is at odds with a vibrant scientific enterprise. Consensus is for textbooks; real science depends for its progress on continual challenges to the current state of always-imperfect knowledge. Science would provide better value to politics if it articulated the broadest set of plausible interpretations, options and perspectives, imagined by the best experts, rather than forcing convergence to an allegedly unified voice.

Yet, as anyone who has served on a consensus committee knows, much of what is most interesting about a subject gets left out of the final report. For months, our geoengineering group argued about almost every issue conceivably related to establishing a research programme. Many ideas failed to make the report — not because they were wrong or unimportant, but because they didn't attract a political constituency in the group that was strong enough to keep them in. The commitment to consensus therefore comes at a high price: the elimination of proposals and alternatives that might be valuable for decision-makers dealing with complex problems.

Some consensus reports do include dissenting views, but these are usually relegated to a section at the back of the report, as if regretfully announcing the marginalized views of one or two malcontents. Science might instead borrow a lesson from the legal system. When the US Supreme Court issues a split decision, it presents dissenting opinions with as much force and rigour as the majority position. Judges vote openly and sign their opinions, so it is clear who believes what, and why — a transparency absent from expert consensus documents. Unlike a pallid consensus, a vigorous disagreement between experts would provide decision-makers with well-reasoned alternatives that inform and enrich discussions as a controversy evolves, keeping ideas in play and options open. That is something on which we should all agree.

[Daniel Sarewitz is co-director of the Consortium for Science, Policy and Outcomes at Arizona State University, and is based in Washington DC.]

Entire speech...

Eisenhower's Farewell Address to the Nation

January 17th, 1961

Good evening, my fellow Americans: First, I should like to express my gratitude to the radio and television networks for the opportunity they have given me over the years to bring reports and messages to our nation. My special thanks go to them for the opportunity of addressing you this evening.

Three days from now, after a half century of service of our country, I shall lay down the responsibilities of office as, in traditional and solemn ceremony, the authority of the Presidency is vested in my successor.

This evening I come to you with a message of leave-taking and farewell, and to share a few final thoughts with you, my countrymen.

Like every other citizen, I wish the new President, and all who will labor with him, Godspeed. I pray that the coming years will be blessed with peace and prosperity for all.

Our people expect their President and the Congress to find essential agreement on questions of great moment, the wise resolution of which will better shape the future of the nation.

My own relations with Congress, which began on a remote and tenuous basis when, long ago, a member of the Senate appointed me to West Point, have since ranged to the intimate during the war and immediate post-war period, and finally to the mutually interdependent during these past eight years.

In this final relationship, the Congress and the Administration have, on most vital issues, cooperated well, to serve the nation well rather than mere partisanship, and so have assured that the business of the nation should go forward. So my official relationship with Congress ends in a feeling on my part, of gratitude that we have been able to do so much together.

We now stand ten years past the midpoint of a century that has witnessed four major wars among great nations. Three of these involved our own country. Despite these holocausts America is today the strongest, the most influential and most productive nation in the world. Understandably proud of this pre-eminence, we yet realize that America's leadership and prestige depend, not merely upon our unmatched material progress, riches and military strength, but on how we use our power in the interests of world peace and human betterment.

Throughout America's adventure in free government, such basic purposes have been to keep the peace; to foster progress in human achievement, and to enhance liberty, dignity and integrity among peoples and among nations.

To strive for less would be unworthy of a free and religious people.

Any failure traceable to arrogance or our lack of comprehension or readiness to sacrifice would inflict upon us a grievous hurt, both at home and abroad.

Progress toward these noble goals is persistently threatened by the conflict now engulfing the world. It commands our whole attention, absorbs our very beings. We face a hostile ideology global in scope, atheistic in character, ruthless in purpose, and insidious in method. Unhappily the danger it poses promises to be of indefinite duration. To meet it successfully, there is called for, not so much the emotional and transitory sacrifices of crisis, but rather those which enable us to carry forward steadily, surely, and without complaint the burdens of a prolonged and complex struggle – with liberty the stake. Only thus shall we remain, despite every provocation, on our charted course toward permanent peace and human betterment.

Crises there will continue to be. In meeting them, whether foreign or domestic, great or small, there is a recurring temptation to feel that some spectacular and costly action could become the miraculous solution to all current difficulties. A huge increase in the newer elements of our defenses; development of unrealistic programs to cure every ill in agriculture; a dramatic expansion in basic and applied research – these and many other possibilities, each possibly promising in itself, may be suggested as the only way to the road we wish to travel.

But each proposal must be weighed in light of a broader consideration; the need to maintain balance in and among national programs – balance between the private and the public economy, balance between the cost and hoped for advantages – balance between the clearly necessary and the comfortably desirable; balance between our essential requirements as a nation and the duties imposed by the nation upon the individual; balance between the actions of the moment and the national welfare of the future. Good judgment seeks balance and progress; lack of it eventually finds imbalance and frustration.

The record of many decades stands as proof that our people and their Government have, in the main, understood these truths and have responded to them well in the face of threat and stress.

But threats, new in kind or degree, constantly arise.

Of these, I mention two only.

A vital element in keeping the peace is our military establishment. Our arms must be mighty, ready for instant action, so that no potential aggressor may be tempted to risk his own destruction.

Our military organization today bears little relation to that known by any of my predecessors in peacetime, or indeed by the fighting men of World War II or Korea.

Until the latest of our world conflicts, the United States had no armaments industry. American makers of plowshares could, with time and as required, make swords as well. But now we can no longer risk emergency improvisation of national defense; we have been compelled to create a permanent armaments industry of vast proportions. Added to this, three and a half million men and women are directly engaged in the defense establishment. We annually spend on military security more than the net income of all United States corporations.

This conjunction of an immense military establishment and a large arms industry is new in the American experience. The total influence – economic, political, even spiritual – is felt in every city, every Statehouse, every office of the Federal government. We recognize the imperative need for this development. Yet we must not fail to comprehend its grave implications. Our toil, resources and livelihood are all involved; so is the very structure of our society.

In the councils of government, we must guard against the acquisition of unwarranted influence, whether sought or unsought, by the military-industrial complex. The potential for the disastrous rise of misplaced power exists and will persist.

We must never let the weight of this combination endanger our liberties or democratic processes. We should take nothing for granted. Only an alert and knowledgeable citizenry can compel the proper meshing of the huge industrial and military machinery of defense with our peaceful methods and goals, so that security and liberty may prosper together.

Akin to, and largely responsible for the sweeping changes in our industrial-military posture, has been the technological revolution during recent decades.

In this revolution, research has become central, it also becomes more formalized, complex, and costly. A steadily increasing share is conducted for, by, or at the direction of, the Federal government.

Today, the solitary inventor, tinkering in his shop, has been overshadowed by task forces of scientists in laboratories and testing fields. In the same fashion, the free university, historically the fountainhead of free ideas and scientific discovery, has experienced a revolution in the conduct of research. Partly because of the huge costs involved, a government contract becomes virtually a substitute for intellectual curiosity. For every old blackboard there are now hundreds of new electronic computers.

The prospect of domination of the nation's scholars by Federal employment, project allocations, and the power of money is ever present – and is gravely to be regarded.

Yet, in holding scientific research and discovery in respect, as we should, we must also be alert to the equal and opposite danger that public policy could itself become the captive of a scientific-technological elite.

It is the task of statesmanship to mold, to balance, and to integrate these and other forces, new and old, within the principles of our democratic system – ever aiming toward the supreme goals of our free society.

Another factor in maintaining balance involves the element of time. As we peer into society's future, we – you and I, and our government – must avoid the impulse to live only for today, plundering for, for our own ease and convenience, the precious resources of tomorrow. We cannot mortgage the material assets of our grandchildren without asking the loss also of their political and spiritual heritage. We want democracy to survive for all generations to come, not to become the insolvent phantom of tomorrow.

Down the long lane of the history yet to be written America knows that this world of ours, ever growing smaller, must avoid becoming a community of dreadful fear and hate, and be, instead, a proud confederation of mutual trust and respect.

Such a confederation must be one of equals. The weakest must come to the conference table with the same confidence as do we, protected as we are by our moral, economic, and military strength. That table, though scarred by many past frustrations, cannot be abandoned for the certain agony of the battlefield.

Disarmament, with mutual honor and confidence, is a continuing imperative. Together we must learn how to compose differences, not with arms, but with intellect and decent purpose. Because this need is so sharp and apparent I confess that I lay down my official responsibilities in this field with a definite sense of disappointment. As one who has witnessed the horror and the lingering sadness of war – as one who knows that another war could utterly destroy this civilization which has been so slowly and painfully built over thousands of years – I wish I could say tonight that a lasting peace is in sight.

Happily, I can say that war has been avoided. Steady progress toward our ultimate goal has been made. But, so much remains to be done. As a private citizen, I shall never cease to do what little I can to help the world advance along that road.

So – in this my last good night to you as your President – I thank you for the many opportunities you have given me for public service in war and peace. I trust that in that service you find some things worthy; as for the rest of it, I know you will find ways to improve performance in the future.

You and I – my fellow citizens – need to be strong in our faith that all nations, under God, will reach the goal of peace with justice. May we be ever unswerving in devotion to principle, confident but humble with power, diligent in pursuit of the Nations' great goals.

To all the peoples of the world, I once more give expression to America's prayerful and continuing aspiration:

We pray that peoples of all faiths, all races, all nations, may have their great human needs satisfied; that those now denied opportunity shall come to enjoy it to the full; that all who yearn for freedom may experience its spiritual blessings; that those who have freedom will understand, also, its heavy responsibilities; that all who are insensitive to the needs of others will learn charity; that the scourges of poverty, disease and ignorance will be made to disappear from the earth, and that, in the goodness of time, all peoples will come to live together in a peace guaranteed by the binding force of mutual respect and love.

Now, on Friday noon, I am to become a private citizen. I am proud to do so. I look forward to it.

Thank you, and good night.