Globalisation and the International Governance of Modern Biotechnology Evaluating Environmental Risks of Bt Maize in the US and EU: Lessons and Challenges for Kenya

This paper was prepared for a project on Globalisation and the International Governance of Modern Biotechnology, which is part of the Globalisation and Poverty programme, a three year programme of research, funded by the Department for International Development, exploring the linkages between globalisation processes and poverty. Executive Summary This paper reviews experiences in the United States, France and Austria surrounding the evaluation of environmental risks associated with the large-scale release of genetically engineered Bt maize. It then attempts to draw lessons that may serve to inform the regulatory debate in countries where similar crops may be introduced in the future, specifically taking Kenya, where Bt maize is currently under development, as a case-study. In this respect it outlines the agro-ecological and socioeconomic contexts into which Bt maize would be introduced, describes the studies currently under way to evaluate the environmental risks of Bt maize in the African context, and identifies some of the challenges associated with the environmental release of this transgenic staple crop. The regulation of environmental effects of Bt maize in the US and EU has primarily focussed on 3 risk issues currently of relevance to the Kenyan context: non-target effects, development of target insect resistance to Bt toxin and gene-flow to wild relatives and non-Bt maize. The different positions taken by various jurisdictions can be linked to the framing of these various issues, the normative reference point against which Bt maize was assessed, and differing interpretations of similar scientific evidence. Knowledge claims regarding the potential effects of Bt maize have been contested as different experts have critically examined the available scientific evidence, and areas of uncertainty and ignorance continue to be debated. African scientists are currently evaluating the potential effects of Bt maize on Kenyan agro-ecosystems, where a significant proportion of maize farmers are smallholders using saved seed. The likely spread of Bt transgenes to local seed stocks can be viewed as a benefit (as it could lead to increased yields without requiring investment from poor farmers) but may also subject farmers to involuntary food safety and environmental risks. The framing of the gene-flow issue is therefore a key challenge to Kenyan regulators. The paper discusses the multi-dimensional nature of risk and suggests that several dimensions will diverge under African conditions in comparison to those in developed countries. The food security imperative for example, will affect the sensitivity of various stakeholders, while the extent of seed-recycling in …