BSE Controversy in Korea

BSE controversy in Korea Hyun Sook Cho Department of Science and Technology Studies Thesis submitted for the degree of Doctor of Philosophy, University College London 1 I, Hyun Sook Cho, confirm that the work presented in this thesis is my own. Where information has been derived from other sources, I confirm that this has been indicated in the thesis 2 Abstract This thesis has examined the Bovine Spongiform Encephalopathy (BSE) controversy in Korea in terms of civic epistemology conceptualised by Jasanoff. The Korean BSE controversy occurred as a result of uncertainty over BSE being mobilised within complex political and economic contexts between Korea and the US, particularly over the issue of the import of US beef after 2003. The complexity of the interests impeded the Korean government from adopting a clear position on BSE risk in beef, and thus led to public distrust and massive public protests in 2008. The controversy demonstrated what I have called an authoritarian character of civic epistemology in Korea, such as the dominance of the government in knowledge production, public accountability limited to procedural form, and dependence on foreign authority. It can be ascribed to the traces of the development process which had been led by a powerful state and which relied on importing advanced countries’ knowledge and skills. However, simultaneously, the controversy showed that this civic epistemology is in transition, challenged by a growing civil society and an increasing demand for public participation. In light of this, rather than a one-off phenomenon, the BSE controversy in Korea could be defined as a symptom of tension caused by friction between the ingrained approach to policy-making and increasing public awareness of democracy. This pattern of civic epistemology, I suggest, is a distinctive outcome of Korea’s status as a latecomer country which has achieved compressed economic growth and recent political democratisation. 3 Acknowledgement I am most grateful to my supervisor Professor Jon Agar, for his patience in reviewing many drafts of this Thesis and for his support and guidance through my PhD. I also would like to take this opportunity to thank my loving family for being there for me all the time. 4 Contents Abstract ..................................................................................................... 3 1 Introduction ............................................................................................. 9 1.1 Background and research aim........................................................ 9 1.2 Methodology ................................................................................ 18 1.3 Structure of this thesis ................................................................. 20 2 Theories and Frameworks ..................................................................... 23 2.1 Introduction .................................................................................. 23 2.2 Science in policy-making ............................................................ 23 2.3 Risk .............................................................................................. 32 2.4 Science and Public ....................................................................... 38 2.5 Civic epistemology ...................................................................... 44 2.6 Conclusion ................................................................................... 54 3 BSE and the BSE crisis ......................................................................... 57 3.1 Introduction .................................................................................. 57 3.2 BSE and vCJD ............................................................................. 58 3.2.1 BSE .................................................................................................................. 58 3.2.2 vCJD ................................................................................................................. 62 3.2.3 Current conditions ............................................................................................ 63 3.3 BSE crisis in the UK in the 1980-1990s ...................................... 68 3.3.1 The policy context ............................................................................................ 68 3.3.2 Identification of new disease and epidemiology .............................................. 71 3.3.3 Southwood Working Party ............................................................................... 74 3.3.4 Next expert advisory committees and regulatory measures ............................. 80 3.3.5 Concerns about human risk .............................................................................. 86 3.3.6 The link between vCJD and BSE and the aftermath ........................................ 91 3.3.7 Appraisals of the UK BSE crisis ...................................................................... 96 3.4 Conclusion ................................................................................. 103 5 4 Broader context of the Korean BSE controversy ............................... 105 4.1 Introduction ................................................................................ 105 4.2 Political and scientific culture in Korea .................................... 105 4.2.1 Authoritarian political culture and powerful bureaucrats ............................... 108 4.2.2 Relationship between Science and Politics .................................................... 119 4.3 Policy structure for BSE and Beef policy.................................. 128 4.3.1 MIFAFF, NVRQS, and the policy ................................................................. 129 4.3.2 World Organization for Animal Health (OIE) ............................................... 137 4.3.3 Regulatory policies on BSE in Europe, Japan, and US .................................. 145 4.3.4 Regulatory policies on BSE in Korea ............................................................ 151 4.4 Conclusion ................................................................................. 155 5 The Chronology of BSE controversy in Korea (1): policy-making on beef .................................................................................................... 157 5.1 Introduction ................................................................................ 157 5.2 Korea and US beef before 2007 ................................................ 159 5.2.1 Korean beef market and BSE in the US ......................................................... 159 5.2.2 Decision to resume US beef import: National Livestock Health Control Council (NLHCC) ........................................................................................................ 164 5.2.3 Import Health Requirements for US beef (2006) ........................................... 171 5.3 Policy process to amend the beef import requirements ............. 180 5.3.1 Conflicts over bone fragments and the Free Trade Agreement (FTA) .......... 181 5.3.2 The ‘Controlled BSE risk’ state, US .............................................................. 187 5.3.3 Import risk analysis and expert committee..................................................... 194 5.3.4 Agony of the government on beef over 30 months ........................................ 202 5.4 Conclusion ................................................................................. 207 6 The Chronology of the BSE controversy in Korea (2): new beef requirements and public protests in 2008 ......................................... 210 6.1 Introduction ................................................................................ 210 6.2 New beef requirements and public protests............................... 211 6.2.1 Conclusion of the new ‘Import Health Requirements for US beef and Beef products’ ...................................................................................................................... 211 6 6.2.2 The new “Import Health Requirements for US beef and Beef products” ...... 214 6.2.3 The beginning of the public protests .............................................................. 218 6.2.4 The government’s untrustworthiness ............................................................. 225 6.3 Disputes over the new beef requirements .................................. 229 6.3.1 The government’s claims and the counterclaims ........................................... 230 6.3.2 Absurd stories and science ............................................................................. 236 6.3.3 Pursuit of scientific truth by scientists ........................................................... 242 6.4 Closure of the controversy ......................................................... 250 6.4.1 Modification of beef requirements ................................................................. 251 6.4.2 The aftermath ................................................................................................. 255 6.5 Conclusion ................................................................................. 260 7 Analysis of the BSE controversy in Korea ......................................... 262 7.1 Introduction ................................................................................ 262 7.2 Summary of the Korean BSE controversy ................................ 262 7.3 Comparison of the Korean ways to approach to scientific knowledge with those of the UK ......................................................

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