September 2013 Report 16 2058 An Overview of Genetic Modification in New Zealand 1973–2013 The first forty years Project 2058: Report 16 September 2013 ŶKǀĞƌǀŝĞǁŽĨ'ĞŶĞƟĐ DŽĚŝĮĐĂƟŽŶŝŶ EĞǁĞĂůĂŶĚϭϵϳϯʹϮϬϭϯ dŚĞĮƌƐƚĨŽƌƚLJLJĞĂƌƐ This report forms part of Project 2058, ƚŚĞ/ŶƐƟƚƵƚĞ͛ƐŇĂŐƐŚŝƉƉƌŽũĞĐƚ Title An Overview of Genetic Modification in New Zealand 1973–2013: The First Forty Years Published Copyright © McGuinness Institute Limited, 30 September 2013 ISBN 978-1-972193-35-8 (paperback) ISBN 978-1-972193-36-5 (PDF) This document is available at www.mcguinnessinstitute.org and may be reproduced or cited provided the source is acknowledged. Prepared by The McGuinness Institute, as part of Project 2058 Authors Wendy McGuinness and Renata Mokena-Lodge Research team Niki Lomax, Hannah Steiner and Grace White For further information McGuinness Institute Phone (04) 499 8888 Level 2, 5 Cable Street PO Box 24222 Wellington 6142 New Zealand www.mcguinnessinstitute.org Disclaimer The McGuinness Institute has taken reasonable care in collecting and presenting the information provided in this publication. However, the Institute makes no representation or endorsement that this resource will be relevant or appropriate for its readers’ purposes and does not guarantee the accuracy of the information at any particular time for any particular purpose. The Institute is not liable for any adverse consequences, whether they be direct or indirect, arising from reliance on the content of this publication. Where this publication contains links to any website or other source, such links are provided solely for information purposes and the Institute is not liable for the content of such website or other source. Publishing This publication has been produced by companies applying sustainable practices within their businesses. The body text is printed on ECO100 paper, manufactured from 100% waste paper in a chlorine-free process. The cover is printed on Mondi Color Copy, which is FSC certified. The McGuinness Institute is grateful for the work of Creative Commons, which inspired our approach to copyright. This work is available under a Creative Commons Attribution-Noncommercial-Share Alike 3.0 New Zealand Licence. To view a copy of this licence visit http://creativecommons.org/licenses/by-nc-nd/3.0/nz Contents Appendices_____________________________________________________________________________5 Foreword ______________________________________________________________________________1 Executive Summary _____________________________________________________________________2 The First Forty Years of GM: By the Numbers _____________________________________________6 1. Introduction ________________________________________________________________________8 1.1 Differentiating Data, Information and Knowledge ____________________________________ 10 1.2 Definition of Genetic Modification ________________________________________________ 10 1.3 Position Statement _____________________________________________________________ 11 1.4 Limitations ___________________________________________________________________ 12 2. ERA I: The Journey Toward the Royal Commission 1973–2000 ___________________________13 2.1 The New Tool: 1973–1990 _______________________________________________________ 13 2.2 The Development of the HSNO Act: 1990–1996 _____________________________________ 14 2.3 The Public Protest: 1996–2000 ___________________________________________________ 15 2.4 The Birth of the Royal Commission _______________________________________________ 16 3. ERA II: The Royal Commission 2000–2001 ____________________________________________17 3.1 The Purpose___________________________________________________________________ 17 3.2 The Establishment of the Royal Commission ________________________________________ 17 3.3 The Process ___________________________________________________________________ 17 3.4 The Four Key Findings __________________________________________________________ 18 3.5 Going Forward: The Two-pronged Approach _______________________________________ 19 4. ERA III: The Response to the Royal Commission 2001–2008 _____________________________20 4.1 The Government’s Initial Response: 2001 ___________________________________________ 20 4.2 The International Science Community’s Response: 2001 _______________________________ 21 4.3 Industry Response: 2001–2004 ____________________________________________________ 21 4.4 New Zealand Society for Risk Management: 2001 ____________________________________ 22 4.5 ‘Corngate’ and the General Election: 2002 __________________________________________ 23 4.6 The Public Response: 2001–2008 _________________________________________________ 23 4.7 The Institute’s Review of the Forty-nine Recommendations of the Royal Commission: 2008 24 5. ERA IV: Institutional Change 2008–2013 ______________________________________________30 5.1 Legislation ____________________________________________________________________ 30 5.2 Central Government Institutions__________________________________________________ 31 5.3 Local Government Institutions ___________________________________________________ 38 5.4 Crown Research Institutes _______________________________________________________ 39 5.5 Non-governmental Organisations _________________________________________________ 40 5.6 Review Body _________________________________________________________________ 42 5.7 Strategy Bodies ________________________________________________________________ 43 5.8 International Treaties ___________________________________________________________ 44 5.9 The Situation in 2013 ___________________________________________________________ 45 6. Crown Research Institutes ___________________________________________________________47 6.1 AgResearch ___________________________________________________________________ 49 6.2 Scion _________________________________________________________________________ 52 6.3 Plant & Food __________________________________________________________________ 55 6.4 Five Principles for Effective Public Investment by CRIs _______________________________ 56 7. Observations, Recommendations and Reflections _______________________________________59 7.1 Observations __________________________________________________________________ 59 7.2 Recommendations ______________________________________________________________ 67 7.3 Reflections ____________________________________________________________________ 93 Abbreviations _________________________________________________________________________98 Glossary _____________________________________________________________________________100 References ___________________________________________________________________________105 &ŝŐƵƌĞƐ Figure 1: The strategic spectrum identified by the Commissioners _______________________________ 18 Figure 2: Institutional change over the last five years _______________________________________ 32, 66 Figure 3: Indoor GMO approved applications by financial year (decisions made by IBSCs) 1998/99–2011/12 _______________________________________________________________ 60 Figure 4: Indoor GMO approved applications by financial year (decisions made by ERMA/EPA) 1998/99–2011/12 _______________________________________________________________ 60 Figure 5: Approved applications for GM outdoor experiments by calendar year 1988–2013 ___________ 61 Figure 6: Approved applications for GM outdoor experiments by entity since the implementation of the HSNO Act 1998–2013 _____________________________________________________ 61 Figure 7: Approved GM outdoor experiments by entity since the implementation of the HSNO Act 1998–2013 ___________________________________________________________ 62 Figure 8: Incidents resulting from indoor experiments by financial year 2004–2012 _________________ 63 Figure 9: Incidents resulting from outdoor experiments by application code 1998–2013 ______________ 64 Figure 10: Incidents resulting from a breach of border security that have been inquired into by MPI from 2000–2013 ____________________________________________________________ 64 Figure 11: FSANZ GM food and fibre decisions by product type 2000–2013 (as at June 2013) _________ 65 Tables Table 1: The nine strategic GM crop recommendations of the Royal Commission __________________ 26 Table 2: The four major strategic institutional recommendations of the Royal Commission __________ 28 Table 3: Summary of 2011/12 CRI financial results ___________________________________________ 49 ƉƉĞŶĚŝĐĞƐ Note: Appendices to this report are provided in a separate document available from the Institute's website. Appendix 1: Timeline of key events as at August 2013 Appendix 2: The Warrant establishing the Royal Commission Appendix 3: The Royal Commission public engagement process Appendix 4: The Royal Commission recommendations not implemented or partially implemented as at 2008 Appendix 5: Moratoria on genetically modified organisms Appendix 6: Genetic modification legislation and standards Appendix 7: Significant legal judgements Appendix 8: Indoor GMO decisions under the HSNO Act 1996 by financial year 1998–2012 Appendix 9: Outdoor experiments by application code 1988–June 2013 Appendix 10: Approved outdoor experiments under the HSNO Act 1996 by entity 1998–June 2013 Appendix 11: Amendments to controls under Section 67A of the HSNO Act 1996 as at June 2013 Appendix 12: Funding for outdoor experiments by application as at June 2013 Appendix 13: Crown funding, expenditure and application fees by financial year 1998–2012