Australasian Biotechnology (backfiles) AusBiotech ISSN: 1036-7128 Vol. 8, Num. 1, 1998

SCARM Working Group to Prepare `Good Agricultural Practice Guidelines for Genetically Modified Crops and Pastures'

A Faragher (Secretary, Genetic Manipulation Advisory Committee) and N F Millis (Chair, Genetic Manipulation Advisory Committee), GPO Box 2183, Canberra ACT 2601

Code Number:AU98005
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The number of genetically manipulated crops and pastures nearing commercial (general) release is increasing worldwide and in Australia. Specific genes are now being introduced into different crops, and different genes are being introduced into a single crop. As a result of these developments, regulatory agencies and potential users of genetically manipulated crops have become aware of the need for a coordinated approach to release of the crops if their use is to be sustainable.

The problem is well illustrated by the introduction into crop plants of genes encoding insecticidal proteins from the bacterium Bacillus thuringiensis (Bt). Bt genes have been used to confer resistance to insect pests in several crop species worldwide. In Australia, Bt cotton is now being planted on a commercial scale, and other Bt crops are in the developmental stage. There is a justifiable concern among the developers and users of Bt crops that, unless the deployment of these crops is carefully managed, the benefits of their use (a reduction in the use of undesirable chemical pesticides on crops) will be lost as insect pests evolve resistance to the Bt toxin produced in the plants. Importantly, the problem of pest resistance to Bt cuts across crop industries: there will be little point in one industry developing elaborate plans and strategies to delay the emergence of resistant pests if, in an adjacent cropping area, the practices of another cropping industry encourage the emergence of resistant pests.

Another example illustrating the need for a coordinated approach to the introduction of modified crops is the deployment of crops that have been modified for resistance to specific herbicides. The proponents of herbicide-resistant crops argue that their use has the potential to increase the weed control options for farmers. But this benefit will quickly be lost if different crops modified for resistance to the same herbicide are used repeatedly in a rotational system. Constant use of the same herbicide in the rotation will increase the selection pressure for emergence of herbicide-resistant weeds. A careful and considered approach by the users of herbicide-resistant crops will be required if the benefits of these systems are to be maximised and sustained.

Work leading to the introduction of novel DNA into a particular crop or pasture plant by genetic engineering techniques, and subsequent field trials in an open environment, come under the surveillance of the Genetic Manipulation Advisory Committee (GMAC). The work must be conducted according to GMAC's Guidelines until advice is given by GMAC that any risk to human health or environmental safety associated with the general release of the genetically modified organism (GMO) is manageable. However, the examples given above illustrate that the deployment of genetically modified crops and pastures in agricultural systems raises broader concerns than the safety issues considered by GMAC.

Recognising this, the Standing Committee on Agriculture and Resource Management (SCARM) has established a Working Group to set out the issues for the management of these broader risks and to prepare guidelines for the development and commercial use of genetically modified crops and pastures in Australian agriculture (`Good Agricultural Practice Guidelines'). The Working Group's Terms of Reference require it to address such issues as the use of herbicide-resistance genes as markers, the potential for outcrossing of transgenic plants, the deployment of genes in rotational systems, and sustainability issues.

The Working Group consists of representatives from GMAC, SCARM, the Commonwealth Department of Primary Industries and Energy, CSIRO, the Grains Research and Development Corporation, and the National Farmers' Federation. It is chaired by Professor Nancy Millis, GMAC's Chair.

In considering its Terms of Reference and the task before it, the Working Group was conscious of the great variety of farming systems prevailing in Australia, as well as the wide variation in climate, soils, pest infestation, the demographics of crop distribution, and the problems peculiar to crop production on individual farms. Accordingly, it was not considered feasible to attempt to prescribe universal rules for the incorporation of transgenic plants into farming systems. Rather, the Working Group has identified issues relevant to good agricultural practice for genetically modified crops and pastures. If farmers and their advisers are aware of these issues, they can take appropriate steps to ensure that their farming systems maximise the useful life of transgenic crops and pastures and associated chemicals, and that their practices take into account the long-term sustainability of the farm, as well as any potential for damage to the environment.

The Working Group decided that it should aim to ensure that relevant sectors of the agricultural and biotechnology industries (biotechnologists and plant breeders, commercial seed sellers, farm/agricultural consultants, and farmers) develop practices to ensure that the use of GMOs in farming systems achieves:

• maximum benefit for farmers;
• maximum benefit for consumers through the application of best farming practices to produce high quality products at affordable prices;
• minimum unwanted impacts on farming land and the open environment;
• an extended life for the genes and chemicals used in the control of pests and weeds;
• agricultural products that are able to compete well on domestic and international markets;
• sustainable agricultural products; and
• rational use of pesticides and herbicides in established agricultural systems.

The Working Group has identified two major outcomes as necessary to achieve these aims:

• a policy to guide plant breeders in the most appropriate genes and markers to incorporate into the various organisms required by agriculture;
• an educated community of farmers, agricultural consultants and extension officers with regard to best practice in the use of GMOs and biocides.

The Working Group proposes that the best way to achieve these outcomes would be discussions between those involved in developing, marketing and using GMOs in agriculture. The discussions would be guided by a set of `Points to be considered by plant breeders' and `Points to be considered in agricultural practice' which have been drafted by the Working Group. The questions in the `Points to be considered' documents would be considered at meetings between the relevant parties, including biotechnologists, plant breeders, commercial seed sellers, chemical companies involved in marketing chemicals associated with use of the GMO, farm/agricultural consultants, and farmers. Other interested parties, such as marketing boards and environmental agencies, may also be involved if appropriate.

The first meeting, to discuss the `Points to be considered by plant breeders', would be convened at the stage of submission of a proposal to GMAC for the first field trial of the GMO in Australia. The second meeting, to discuss the `Points to be considered in agricultural practice', would be held at the stage of submission of a proposal to GMAC for general (unrestricted) release of the GMO in Australia. The outcome of the second meeting should be the development of an information package, to be made available to farmers and farm consultants, which sets out the practices to be followed for use of the GMO on the farm. These practices should aim to sustain for as long as possible the use of the GMO and associated chemicals.

This proposed strategy is still in draft form and has not yet been considered or endorsed by SCARM. Details of how the answers to the questions in the `Points to be considered' documents would be assessed and evaluated have also not yet been developed. However, the Working Group hopes that the strategy will form a good starting-point for increasing the awareness of issues for good agricultural practice in the use of genetically modified crops and pastures, and for maximising their benefits to Australian agriculture.

Copyright 1998 Australian Biotechnology Association Ltd.