The GM decision-making process: who decides?

Genetically modified (GM) crops are legally grown in over 17 countries worldwide. Three of the world’s five largest GM producers – Argentina, China and Brazil – are developing countries (the other two are USA and Canada). How do governments in developing countries make decisions concerning GM crops and who has access to these decision-makers?

In 2004, around 8.1 million hectares (1.6 percent of all agricultural land) were used for GM crops. This figure will increase by 20 percent a year. Yet there are still intense debates over the benefits and risks of GM crops. Supporters claim the technology allows farmers to produce more food for lower costs, using fewer natural resources and chemicals. Those against GM believe there is not enough known about long-term impacts on the environment and human health. Discussion is often divided between these two viewpoints. A report by The Panos Institute, UK analyses the process of decision-making in developing countries, particularly whose views influence governments, as they decide on the GM debate.

Using case studies in India, Thailand, Zambia, Kenya and Brazil, the report finds decision-making processes vary considerably between countries, depending on political, economic, agricultural and environmental contexts. Balanced arguments that assess benefits and risks and seek consensus are rare. Across the developing world, opinions (even among common interest groups) are divided. For example, while Zambia’s farmers have rejected GM crops, Brazil’s large-scale farm businesses are enthusiastic about it.

However, there are some common factors:

• Governments play a large role through their agriculture, commerce, science and environment ministries - all of them competing for influence.
• Consumer groups and other non-governmental organisations (NGOs) are more successful at accessing or influencing the ministries of environment and public health rather than the other, often more powerful, ministries.
• Different groups of citizens have different levels of access to the policymaking process: for example, commercial farmers have more access than small-scale farmers.
• Scientists are involved in most stages of the decision-making process and tend to have good access to decision-makers across all policy areas.
• The quality of media debate is higher in countries with multiparty systems of government, an active civil society and a tradition of independent media; although much coverage shows a weakness of investigative journalism in science-related issues.
• External groups both for and against GM, such as biotechnology companies and NGOs, have significant influence over the media in many countries.

Whether to grow GM crops is a key issue for developing countries in terms of nutrition, income opportunities, food security and the economy. However, with research on GM crops in its early stages, governments must be guided by more than scientific investigation. To assess whether each country is willing to accept or reject GM technology, the authors recommend that:

• All stakeholders – government, farmers, industry, NGOs, the general public, international donors and scientists – need to be involved in making decisions on GM technology.
• Stakeholders, particularly governments, should make sure they are receiving accurate information on the issues.
• Journalists and the media must ensure all views are heard, particularly the views of those most affected by GM issues such as farmers and consumers.
• Decisions must be informed by full public debates.

Source(s):
‘The GM Debate – Who Decides?’, The Panos Institute, Report No 49, by Ehsan Masood et al, 2005 Full document.

Funded by: Department for International Development (UK); the Swedish International Development Cooperation Agency; the Rockefeller Foundation; the Norwegian Agency for International Development Cooperation

id21 Research Highlight: 27 September 2005

Further Information:
Ehsan Masood

Contact the contributor: EhsanMasood@aol.com

Panos Institute, UK

External Relations Unit
Panos London
9 White Lion Street
London N1 9PD, UK

Tel: +44 (0)20 7278 1111
Fax: +44 (0)20 7278 0345
Contact the contributor: media@panos.org.uk

Other related links:
'Crop wars: can obstacles to genetically modified crops be removed?'

'Debating GM crops - id21 insights 52'

'Biotechnology politics in Delhi’s corridors of power'

Science and Development Network Dossier on GM crops

Eldis resources on biotechnology