MAF background paper for consultation with Maori on "coexistence"
Coexistence? How can this be achieved and what role will "conditional release" play?
The government has agreed with the Royal Commission on Genetic Modification that New Zealand should proceed, with caution, to employ genetic modification (GM) technology, while keeping all options open to would-be producers. This means that there are going to have to be compromises if all forms of agriculture, horticulture and forestry are to coexist here.
The government believes that this approach will bring benefits to all New Zealanders in the long run. We want to consider how Maori can make the most of the opportunities.
MAF has the task of working out how to enable this to happen. It is seeking help from Maori on what sort of system should be put in place, how it will be implemented, and what role Maori will play in it.
The government has established Toi Te Taiao: the Bioethics Council to advise, guide and promote dialogue on the cultural, ethical and spiritual issues associated with biotechnology. Biotechnology, it should be remembered, is a much wider topic than GM. This body is the one to approach about the big issues and not specific cases. It will provide the government with advice on these issues but will not be there to judge cases or advise the Environmental Risk Management Authority (ERMA), which regulates the introduction of new organisms into the environment, on what to do. Sir Paul Reeves has been appointed foundation chairman of the Council and it is likely that when other members are announced, which is expected to be within the next month, a number of prominent Maori will be amongst them.
ERMA operates under the Hazardous Substances and New Organisms Act (HSNO Act) which regulates the introduction of new organisms, including those that are GM. Every application to introduce a new organism is considered on a case-by-case basis. The Act is being amended in line with recommendations made by the Royal Commission. This consultation is part of the process. Your input is important.
Amongst the key recommendations of the Royal Commission was that a new category of release, called "conditional release" be recognised in the law (HSNO Act). Currently, if an applicant received approval from ERMA to release a plant or animal no conditions could be placed on how it was handled after release and ERMA can not require monitoring of the impact of the plant or animal on the environment. It could be used anywhere in New Zealand by anyone.
Buffer zones
"Conditional release" is seen as potentially providing a means to enable coexistence to occur. The types of conditions that could be applied include limiting when and where a plant (crop) can be grown, specifying what measures need to be taken to ensure that it does not spread, and requiring a long-term environmental impact study to be implemented. Buffer zones are likely to be important, just as they are currently where a farmer wishes to grow certified seed for sale. Buffer zones would be areas surrounding fields planted with GM-crops where a farmer would not be permitted to grow a crop that could be cross-pollinated with GM pollen. This means that those wishing to grow a GM crop will need to talk with their neighbours and agree on actions that will ensure that cross-pollination is not a problem. Agreements with local bee-keepers will also be needed where pollination of the crop in question involves bees.
Commercial seed producers already operate a voluntary scheme that restricts the growing of certain seeds, such as those of brassicas (eg.rape, kale, choumoellier) to specific geographic locations in order to prevent cross-pollination.
Our current thinking is that ERMA will set the conditions and some other agency will enforce them. ERMA will retain the power to authorise unconditional releases also.
Issues for Maori:
- Involvement of Maori in conditional release;
- Impact of buffer zones on:
- Maori owned land;
- Maori land use;
- Waahi tapu.
The government is determined to lift the moratorium on 1 November, 2003, in order to progress its policy. This does not mean that there will immediately be a flood of applications for releases of GM organisms into the New Zealand environment. There was no moratorium before the Royal Commission in 2000 and there were no applications to release GM organisms then.
Code of Practice
MAF needs to develop an industry code of practice to ensure effective separation distances between GM and non-GM crops on a case-by-case basis, where appropriate. It may be possible to implement a Code through "conditional release" where that has been granted. This would be a compulsory code. Where release is unconditional the code would be voluntary. For example, if a crop was sterile there would be no risk of it spreading and it is hard to see why conditions should be place on it or its use made subject to a code.
Issues for Maori
- Impact of a compulsory code for separation distances on Maori;
- Issues of kaitiakitanga.
Mediation Service
Coexistence is going to involve compromises and these may not always be easy to arrive at. MAF is expected to develop formalised networks to encourage farmers wishing to use the various production methods to talk the issues through and come to agreements. It is also expected to provide a mediation service where this proves necessary. It is not clear who will fund this service.
Issues for Maori
- Maori mediation processes;
- Maori to contract to establish a Maori mediation service;
- Mediation around issues of kaitiakitanga, waahi tapu;
- Appropriate adjudication processes for Maori should mediation not resolve issues.
What is ahead of us?
We simply do not know what GM-crops are likely to be introduced. World-wide the most common GM crops are grains that are either tolerant to a herbicide (e.g. Roundup Ready) or contain a gene from the soil bacterium Bacillus thuringiensis (Bt) which confers insect resistance on the plants. The three main areas where opportunities were identified by submitters to the Royal Commission were, firstly, increased productivity in the current industry sectors (74.1%); secondly, human health benefits (47.2%), and thirdly, an increased range of products (21.6%).
Examples of possible increased productivity
- Insect resistant lucerne
- Herbicide resistant sterile pines (no cones – all energy going into growth)
- Insect resistant potatoes
- Herbicide resistant onions
- Aluminium and drought tolerant forage plants (ryegrass and clover)
- GM biocontrol agents controlling possums and other pests
Examples of possible human health benefits
- Vaccines e.g. Orocol Berna (Cholera vaccine – widely used overseas)
- Allergen-free foods
Examples of possible new products
- Cut flowers (e.g. blue GM carnations are widely grown overseas)
- Nutriceuticals ( any food or food ingredient considered to provide medical or health benefits)
- Bioremediators e.g. bacteria or fungi that break down pollutants such as crude oil or pesticides
Contact for Enquiries
Dr Sharon Adamson
Manager,
Innovation Policy
Ministry of Agriculture and Forestry
PO Box 2526
Wellington
NEW ZEALAND
Phone: +64 4 894 0618
Fax: +64 4 4 894 0741
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