DEPARTMENT OF PRIMARY INDUSTRIES Issues Paper: Review of the Moratorium on Genetically Modified Canola July 2007 Published by the Victorian Government Department of Primary Industries, Melbourne, July 2007 Also published on www.dpi.vic.gov.au © The State of Victoria Department of Primary Industries 2007 This publication is copyright. Reproduction and the making available of this material for personal, in- house or non-commercial purposes is authorised, on condition that: the copyright owner is acknowledged no official connection is claimed the material is made available without charge or at cost the material is not subject to inaccurate, misleading or derogatory treatment. Requests for permission to reproduce or communicate this material in any way not permitted by this licence (or by the fair dealing provisions of the Copyright Act 1968 ) should be directed to the Customer Service Centre on 136 186 or email [email protected] . ISBN 978-1-74199-673-9 (Print) ISBN 978-1-74199-674-6 (Online) Disclaimer This publication may be of assistance to you but the State of Victoria and its employees do not guarantee that the publication is without flaw of any kind or is wholly appropriate for your particular purposes and therefore disclaims all liability for any error, loss or other consequence which may arise from you relying on any information in this publication. Produced by: GM Canola Review Panel Secretariat Department of Primary Industries Level 19, 1 Spring Street GPO Box 4440 Melbourne VIC 3001 Telephone: (03) 9658 4872 Fax: (03) 9658 4472 Email: [email protected] This paper is also available at www.dpi.vic.gov.au ii Contents Information for review contributors ...................................................................1 Issues paper.......................................................................................................................1 Timetable for the review process .........................................................................1 Key contact details.........................................................................................................1 Purpose of the Review of the moratorium on genetically modified canola..............................................................................................................................2 Scope of the Review of the moratorium on genetically modified canola..............................................................................................................................2 Composition of the Review panel .........................................................................2 Terms of reference ........................................................................................................3 Process of the Review..................................................................................................4 How to make a submission.......................................................................................4 1. Introduction..................................................................................................................5 1.1 Herbicide tolerant canola varieties.....................................................5 1.2 Genetically modified canola varieties in Australia....................8 1.3 Genetically modified crops: an international perspective.....8 1.4 Genetically modified crops in Australia...........................................9 2. Addressing risks of genetically modified organisms in Australia10 2.1 Australian regulation of genetically modified organisms .10 2.1.1 Safety of human health and the environment............................ 10 2.1.2 Genetically modified food safety and labelling ........................ 11 2.2 Regulation of genetically modified organisms in Victoria 11 3. The canola industry ..............................................................................................14 3.1 Global canola production and trade................................................14 3.2 The Australian canola industry..........................................................15 3.3 Additional uses of canola......................................................................17 3.4 Marketing in the grain industry ........................................................18 3.4.1 Grain supply chain management...................................................... 18 3.4.2 Meeting grain market requirements............................................... 19 3.5 International and Australian organic industries......................20 iii 4. Economic impacts of the moratorium on genetically modified canola...........................................................................................................................22 4.1 Studies relevant to the terms of reference .................................22 4.2 Economic benefits and costs of the moratorium ....................23 5. Potential policy changes.................................................................................25 5.1 Should the moratorium be extended or terminated?............25 5.2 Other measures?.........................................................................................25 6. Further reading ....................................................................................................27 Appendix 1. OGTR media releases ....................................................................29 Appendix 2. Moratorium announcement 2004...........................................33 Appendix 3. Announcement of Review of GM canola moratorium.36 Appendix 4. Review submission cover sheet..............................................38 Appendix 5. Federal agencies responsible for the regulation of gene technology in Australia .........................................................................39 Office of the Gene Technology Regulator.................................................39 Food Standards Australia New Zealand .....................................................40 Australian Pesticides and Veterinary Medicines Authority ............40 The Australian Quarantine and Inspection Service.............................41 iv Information for review contributors Issues paper This issues paper is intended to assist the preparation of submissions to the Review of the moratorium on genetically modified (GM) canola. It outlines the scope of the Review and issues on which the Review panel is seeking comment and information. However, the paper is not intended to restrict comment, and respondents should include any information or views that they consider relevant to the Review’s terms of reference. Timetable for the review process The current Moratorium Order on the commercial cultivation of GM canola in Victoria is due to expire on the 29 February 2008. The closing date for written submissions to the Review panel is 17 August 2007 . Following receipt of submissions and meetings with key stakeholders, the Review panel will prepare a report for the Minister for Agriculture, to be submitted in September 2007. Key contact details All enquiries to the Review panel should be directed to the Review secretariat. Review secretariat: Dr Robert Sward Telephone: (03) 9658 4872 Facsimile: (03) 9658 4472 Email address: [email protected] Website: www.dpi.vic.gov.au Postal address for submissions: GM Canola Review Panel Secretariat Department of Primary Industries Level 19, 1 Spring Street GPO Box 4440 Melbourne VIC 3001 Issues Paper: Review of the Moratorium on Genetically Modified Canola 1 Purpose of the Review of the moratorium on genetically modified canola In 2003, the Federal Office of the Gene Technology Regulator (OGTR) approved the commercial release of Bayer CropScience's InVigor® GM canola and Monsanto Australia's Roundup Ready® GM canola. The OGTR concluded that these canola varieties pose no greater risk to human health or the environment than do conventionally bred canola (for media release, see appendix 1). The Victorian Government in 2004 concluded that the timing was not appropriate for the full commercial release of the two varieties of GM canola, due to ‘divisions and uncertainty within industry, the farming sector and regional communities about the impact of GM canola on markets’ (for media release, see appendix 2). On 12 May 2004, the Minister for Agriculture thus issued an Order declaring a four year moratorium in Victoria on the commercial scale planting of GM canola. The moratorium is in place until 29 February 2008 and will be reviewed before the Order expires. All other Australian states and territories, except Queensland and the Northern Territory, have introduced moratoria on either GM canola or, more broadly, GM crops for various lengths of time. On 22 May 2007, the Premier of Victoria, the Hon. Steve Bracks MP, announced the establishment of an independent panel to review the moratorium on the commercial cultivation of GM canola in Victoria (for media release, see appendix 3). Scope of the Review of the moratorium on genetically modified canola Under a policy principle established within the Gene Technology Act 2000 (Commonwealth), the moratorium on the commercial cultivation of GM canola in Victoria was imposed in 2004 for trade and market access reasons. This Review focuses on trade and market access considerations. Matters of human health, safety and environmental impacts are not part of the terms of reference, because these matters are considered under federal legislation. Composition of the Review panel The Review will be conducted by