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Genetic Modification

Toi te Taiao: The Bioethics Council

The Royal Commission on Genetic Modification recognised the significance of the cultural, ethical and spiritual aspects of biotechnology and recommended establishing a Bioethics Council to provide advice and promote ongoing dialogue among New Zealanders on these matters.

Visit the Bioethics Council website to find information on bioethics, the Council and its work programme, and to participate in the dialogue.

The Bioethics Council will use the results of the dialogue for its advice to Government. Government departments will use this advice when formulating policies on biotechnology. ERMA will also take the findings of the Bioethics Council into account when making its decisions on individual applications.

Research programmes investigating the impact of genetic modification

The Royal Commission on Genetic Modification identified gaps in New Zealand’s understanding of genetic modification (GM) and its possible effects. The government agreed with the Royal Commission’s recommendation that public research funding be allocated for research to fill in some of these gaps. This included research examining the environmental, social, economic and ethical aspects of the release of genetically modified organisms.

Specific projects that have received public funding include work on the impact of plants (both GM and conventional) on the soil and on horizontal gene transfer – in which genes from one plant can pass directly to another by a process similar to infection. Researchers are working to identify native and naturalised plant species that could be subject to gene flow from GM crops grown nearby as well as the impact of GMOs on native insects and the birds that feed on them.

Other research projects are investigating the ethical questions raised by genetics and the development of genetic technologies in New Zealand; exploring attitudes to biotechnology; and identifying how Māori values can be incorporated into scientific decision-making.

The results of one project – Economic risks and opportunities from the release of genetically modified organisms in New Zealand – were published in April 2003. This research report was prepared for the Ministry for the Environment and the Treasury by BERL and AERU.

Increased investment in this range of research will provide a number of benefits, including:

  • more informed decision-making on the impacts of genetically modified organisms
  • greater knowledge to inform the dialogue between those developing new biotechnologies and society
  • improved capability to investigate the on-going impacts of GM and other emerging biotechnologies
  • New Zealand-specific knowledge of the impacts of genetically modified organisms.

To find out more about the research going on in response to the Royal Commission’s recommendations, visit the Ministry for Research Science and Technology (MORST) website. This webpage includes links to a report published by MORST describing the funding levels and types of research going on, and discussing the contribution this work will make to decision-making on GM and biotechnology in New Zealand.

Coexistence of GM and non-GM crops

The major theme of the report of the Royal Commission on Genetic Modification was “preserving opportunities”.

As it noted in its final report:

“ Our recommendations aim to encourage the coexistence of all forms of agriculture. The different production systems should not be seen as being in opposition to each other, but rather as contributing in their own ways to the overall benefit of New Zealand.”

In addition to conventional agriculture, those other production systems referred to were organic, integrated pest management, and the use of genetic modification.

In endorsing the Royal Commission’s approach, Cabinet directed officials, led by the Ministry of Agriculture and Forestry (MAF), to explore the concept of coexistence, how it might work in practice, and the policy framework needed to support it. The results of that work have now been released by the Government.

  • “Cabinet Paper 1 Overview” provides a background to the concept of coexistence and discusses how GM production could be applied within the framework of current New Zealand primary production.
  • “Cabinet Paper 2 Practicalities of Specific Issues” looks at how particular issues related to coexistence might be dealt with in practice. This paper should be read in conjunction with the overview paper that provides the context for these issues.

More information on coexistence can be found on the Ministry of Agriculture and Forestry’s website.

The Royal Commission on Genetic Modification also recommended public research funding be allocated to ensure organic and other sustainable agricultural systems were adequately supported.

As well, MAF has been working with the organic sector to help it finalise a development strategy which takes a 20-year view of the development of organics in New Zealand. That was launched in 2003. A new standard for organics certification – the New Zealand Organic Standard – was also introduced in 2003.

Biotechnology Strategy

The Royal Commission on Genetic Modification dubbed the 21st century the “Biotechnology Century”. Genetic modification is just one of many new biotechnologies likely to become increasingly available.

Biotechnology is any technological application that uses biological systems, living organisms, or derivatives thereof (whether genetically modified or not), to make or modify products or processes for general use.

The Royal Commission identified the need for the development of a Biotechnology Strategy that would ensure New Zealand keeps abreast of developments in this rapidly evolving area. Accepted developments would be of national advantage, while preserving essential social, cultural and environmental values.

In May 2003 the Ministry of Research, Science and Technology (MoRST) – which is responsible for providing direction for science and innovation as a whole – produced the New Zealand Biotechnology Strategy.

A Biotechnology Taskforce, consisting of representatives from within the biotech community, was also established and has developed an action plan to stimulate growth and international competitiveness of the sector.

For more information on biotechnology visit MoRST’s biotechnology webpages.

Food

No fresh fruit, vegetables or meat grown locally or imported into New Zealand are genetically modified but some processed foods contain imported ingredients that have been genetically modified. Since December 2001, those foods have had to be labelled. For more information on the labelling requirements, see What are the labelling requirements for genetically modified food?

Any GM ingredients must also be approved as safe before they can be sold in New Zealand. For more information see How is the safety of genetically modified food assessed.

The Royal Commission on Genetic Modification recommended that the Government facilitate the development of a voluntary label indicating food that has not been genetically modified, contains no genetically modified ingredients and has not been manufactured using a process involving GM.

A Discussion Paper on Voluntary GM-Free Labelling was released in April 2003 by the Ministry of Consumer Affairs and the New Zealand Food Safety Authority. Submissions on the discussion paper have highlighted the practical difficulties of implementing such a scheme. Consumers would expect a "GM-Free" label to mean no genetic modification techniques had been used in the production process and that no altered DNA or protein is present in the final product. On the other hand, it would be costly and in some cases very hard for food producers to ensure this is the case, especially where they rely on multiple providers for their ingredients.

Under New Zealand's Fair Trading Act, any claim that a product was GM-Free would also have to meet those criteria. Government officials are currently working through these issues to come up with a solution that will meet the expectations of both food producers and consumers wishing to avoid all GM foods.

Treaty of Waitangi

The Royal Commissioners recommended that the Hazardous Substances and New Organisms (HSNO) Act 1996 be amended to give effect to the principles of the Treaty of Waitangi.

The Government agreed to amend the HSNO Act to more appropriately reflect the Treaty of Waitangi relationship and in 2002 set up a Māori Reference Group to assist with this. The Government considered the report of the Māori Reference Group, along with the advice of officials, and decided to make legislative changes to the Act, and also to introduce practical changes to the way the application and decision-making processes work.

The HSNO Act has been amended to give greater emphasis to the knowledge and experience of Māori values by those involved in the decision making process on new organisms, including genetically modified organisms. It does this by adding knowledge of the Treaty of Waitangi and tikanga Māori to the range of expertise and experience the Minister considers when appointing members of the Authority.

As well, Nga Kaihautu Tikanga Taiao (the body that advises the decision-making body, the Environmental Risk Management Authority, on Māori issues) is given a statutory basis within the Act. Previously there was no requirement in law for the Authority to have a Māori advisory committee. Now this has been changed to make it mandatory.

The Government is also encouraging a series of initiatives aimed at establishing better lines of communication between Māori and potential applicants for new organisms’ research. These include initiatives to improve the engagement of Māori early on in the development of research programmes that may lead to an application to the Authority, and extending work already underway on developing a network of Māori representatives on the Institutional Biological Safety Committees (IBSCs). The IBSCs are delegated by the Environmental Risk Management Authority to make decisions on applications involving certain low-risk genetically modified organisms in containment.

Public information

The Royal Commission on Genetic Modification identified the need for basic factual information about GM and how it is controlled.

In November 2001 the Ministry for the Environment conducted a public awareness and knowledge benchmark survey. This survey showed that many people would like more information on genetic modification. The material in the About GM section of this website was developed specifically for this purpose.

Print material about genetic modification is also available.

Other initiatives

ERMA review

In July 2003, the Government released a review of the Environmental Risk Management Authority’s (ERMA) decision-making capacity, particularly for new organisms.

The review team was led by a former chief executive of Environment Waikato and Hutt Valley Health Ltd, Graeme Nahkies. Other members were Professor Margaret Loutit of Otago University and Sissel Rogne of the Norwegian Biotechnology Advisory Board.

It found the Authority had the core competencies and the capability to carry out its role as the independent decision-making body that controls the introduction into New Zealand of new plants and animals, including genetically modified organisms. ERMA’s other role is in controlling the introduction and use of new and existing hazardous substances in New Zealand.

While finding ERMA had the capability to do the job, the review team made 49 recommendations to strengthen the Authority’s performance in various areas, including its functions under the law, its internal policies for the development of staff and management and its relationships with other agencies, stakeholders, Māori and the public.

Last updated: 7 January 2008