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Australia Must Reap the Benefits of GM Technology

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Australia Must Reap the Benefits of GM Technology NUMBER 139 JANUARY 2006 AUstRALiaN ACADemY OF TECHNOLOgiCAL SCieNCes AND ENgiNeeRING IN THIS ISSUE: Fellows contribute their views on the genetic modification of crops and foods; the results of ATSE’s survey on nuclear power, and further contributions to that debate Australia must reap the benefits of GM technology By John Radcliffe E TS F M umankind has a long history of resistance to up to 30 years – effectively a generational change – be- A change. There are many examples. Galileo’s fore new technologies are widely accepted. The value astronomical discoveries confirmed the of superphosphate fertilisers in agriculture was estab- CLIFFE theory of Copernicus that the earth revolves lished in the 1880s but they were not widely accepted D [email protected] J Haround the sun but he was forcibly obliged to recant until the 1920s. Automobiles, airline travel and com- mail: during the Inquisition. After nearly 150 years, Darwin’s puters took 30 to 40 years to become widespread after E JOHN RA r ommission and chair of the South C evolutionary theories are still being disputed by a small the first reliable examples had been introduced. D minority in American courts. Opposition to change can include fear of the un- The introduction of the grain harvester (“stripper”) known, distrust of the change agents, threats to the in Australia was resisted by opponents strewing wire holders of the prevailing wisdom, personal or commer- ational Water Water ational through the crop to render the technology ineffective. cial self-interest and often, political opportunism. The N More recent Australian examples have included a 10- consideration of change is about the net benefits from year delay to the introduction of food irradiation, con- the trade-offs between benefits from a new technology Management. Resource atural N tinued pockets of resistance to fluoridation of domestic based on sound science versus the risks associated with water supplies and a disinclination to accept the need it. Yet the consideration can too easily become domi- ommissioner of the entre for for entre C for a long-term radiation storage repository despite nated by perceptions driven by emotional assertions C being the world’s largest exporter of uranium. Contro- and strongly held faiths and beliefs. urrently a urrently ustralian ustralian versy currently surrounds proposals in several drought- All the evidence suggests that these limitations are C A prone regional cities to improve reliability of access to most effectively overcome by having the wider com- water resources by introducing water recycling. munity accept the necessity to address the merits of an There is evidence that the community can require u paGE 2 Statements and opinions presented in this publication are those of the Honorary Editor: Dr D C Gibson FTSE Technical Editor: Professor I D Rae FTSE www.atse.org.au authors, and do not necessarily reflect the views of ATSE. AUStraLiaN ACADEMY OF TECHNOLOGICAL SCIENCES AND ENGINEEriNG There is no copyright restriction on material published in ATSE Focus. It Address: Ian McLennan House, 197 Royal Parade, Parkville Vic 3052 may be reproduced provided appropriate acknowledgement is given to Postal Address: PO Box 355, Parkville Vic 3052 the author and the Academy. Telephone: 03 9340 1200 Facsimile: 03 9347 8237 Email: [email protected] ACN 008 520 394 ABN 58 008 520 394 Production: www.coretext.com.au Print Post Publication No 341403/0025 ISSN 1326-8708 COVER STORY: THE GM DEBATE t FrOM paGE 1 Government involvement developed at a relatively issue, having a say in the decision and thereby achieving late stage following a 1992 House of Representatives ownership of the decision reached rather than a deci- Standing Committee on Industry, Science and Technol- sion being bureaucratically determined and an “educa- ogy review entitled Genetic manipulation – The Threat tion program” mounted to drive acceptance. or the Glory. Despite GMAC having generally worked Within Australia, the introduction of genetically effectively through peer pressure among the scientists, manipulated organisms was managed from 1987 by sci- there were nevertheless mounting pressures to establish entists themselves, through a non-statutory body, the statutory regulation, partly caused by some early prog- Genetic Manipulation Advisory Committee (GMAC). eny from a porcine genetic manipulation project being Its role was to review “any experiment involving the disposed of to the local abattoirs and potentially into construction and/or propagation of viroids, viruses, the human food chain after the project was completed, cells or organisms of novel genotype produced by ge- and partly due to concerns about the appropriateness netic manipulation which are either unlikely to occur of the then NRA regulating in the area of gene technol- in nature, or likely to pose a hazard to public health or ogy, as some future applications would likely lie outside to the environment”. From 1987 to 1999, it dealt with of its scope. 1681 small-scale contained experiments, 13 large-scale This led to a convergence of the competing endea- contained experiments, 109 deliberate releases and two vours of the Department of Agriculture, Fisheries and activities with a risk of unintended release. Forestry, the Department of Environment, the Depart- The first major industry to adopt genetic modifica- ment of Industry, Science and Technology and state tion (GM) was the cotton industry, with the introduc- governments. An agreement was reached in 1997 to tion of varieties containing a single Bacillus thuringen- establish a statutory regulatory scheme to review and sis (Bt) gene to provide resistance against heliothine endorse proposals for genetic manipulation. In the insects (Helicoverpa armigera and H. punctigera). Ini- event, the Department of Health, which had been a late tial approval to proceed was given by the then National arrival into this particular policy arena, was given car- Registration Authority for Agricultural and Veterinary riage of the regulatory responsibility in recognition of Chemicals (NRA) in the absence of any other mecha- the primacy of ensuring there were no significant risks nisms. to human health. The passage of the Gene Technology The industry, which had been using 15 to 20 in- Act 2000 (Commonwealth) to create the Office of the secticide spray applications in a growing season, was Gene Technology Regulator (OGTR) and the trans- quite sensitive to the public’s perception of chemicals parent processes for the evaluation of genetic manipu- and spray drift and also cognisant of the capacity of the lation proposals attracted relatively little controversy pests to develop chemical resistance. Through self-man- at the broad community level, despite the considerable agement, the cotton industry has successfully used ro- resistance �������������������������������������������to the technology �������������������������that had been building in tations of chemicals over many years to ensure that pes- Europe at that time. ticide resistance does not become established. When a The experience with subsequent proposals to grow genetically modified single-gene insect-resistant variety soybeans, maize and canola has been less sanguine. was introduced in 1996, use was restricted to 30% of Concerns, particularly driven by some organic farm- the planted area with large areas of refugia to minimise ing, anti-globalisation and environmental lobbies, have any genetic resistance developing in the insect popu- resulted in opposition to the introduction of GM vari- lation. Pesticide use on the GM varieties was reduced eties of these crops through the potential for threats to by more than half. More recently, two-gene resistance the genetic purity of non-GM crops through the “ad- has been introduced into varieties, greatly reducing the ventitious presence” of GM contaminants from pollen probability of resistance developing. Nearly 80% of the flow and contamination during handling and storage; a Australian cotton crop is planted to GM varieties with perception that non-GM crops have a market premium pesticide applications reduced by 60% to 75%, and a over GM varieties; an absence of evident consumer 90% reduction in the use of endosulfan. benefits; publicity given to several incidents where in- Although cotton is primarily a fibre crop, cotton dustry researchers had failed to fully meet OGTR man- seed oil and meal routinely enter the food chain and agement standards; and lack of clarity about liabilities no adverse health effects have been reported. There has flowing from the use of GM varieties. These issues in been no significant public concern arising from the use turn generated insecurity, confusion and lack of trust of Bt cotton in food. in GM technologies among farmers who were pri- www.atse.org.au COVER STORY: THE GM DEBATE marily worried about security of market access if GM Figure 1: Annual OGTR Licence Applications crops were introduced. As a consequence, although the OGTR had approved, for example, the commercial in- 25 troduction of two GM canola varieties, the states have 20 legislated for a moratorium on planting GM crops, require effective crop and grain handling segregation 15 and/or provide for the declaration of GM-free areas. 10 The result of these various state interventions has been to bring about a substantial reduction in invest- 5 ment in GM crop research and development, as rep- 0 resented by the decline in the number of crop-related 2001 2002 2003 2004 2005 [to July] applications to the Office of the Gene Technology Regulator (Figure 1) In 2004, 8.25 million farmers across 17 countries now realising that Australia cannot afford to forgo the grew 81 million hectares of GM crops, with 60% as- benefits of genetic modification technology. signed to soybeans, 23% to maize (corn), 11% to cot- Dr John C Radcliffe AM FTSE, an agricultural scientist, was Director General of Agriculture in South Australia from 1985- ton and 6% to canola. Research is continuing on GM 1992, and an Institute Director and Deputy Chief Executive applications in other crops.
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