12.D.4 International issues of using GMOs to control vertebrates

This project reviewed international issues of using genetically modified organisms (GMOs) as biological controls for vertebrates. The published report and associated Wildlife Research article (see ‘Documents’) provide a comprehensive and up-to-date overview of research on GMOs in Australia and overseas. The regulations and ethics guidelines presently governing this type of research are outlined. Important issues concerning GMOs that have been raised in recent conferences and literature are also described.

GMOs have been researched for their potential in managing rabbits, mice, possums, foxes and exotic fish. In Australia, the Invasive Animals CRC and its predecessor the Pest Animal Control CRC had projects developing fox, rabbit and mouse viruses for use as biocontrols. These projects have since been shelved due to problems with lack of host specificity or poor viral transmission. Despite these setbacks, biocontrol remains an attractive option. A major IA CRC project developing ‘daughterless’ carp (where GM carp only produce male offspring) is underway. Interest has also recently been shown in developing GMOs to control cane toads in Australia.

Overseas, New Zealand is developing a transmissible GM nematode targeted at possum fertility, to greatly reduce the introducedpossum populations there. In the United States, GMOs are being investigated to control various exotic fish, using daughterless technology and other strategies. In Spain, a transmissible GM virus aimed at protecting native rabbits from both myxomatosis and rabbit hemorrhagic disease (RHD) has been developed and field trialled. There is support for this virus to be released, since the rabbit is valued for hunting, and as prey for the endangered Iberian lynx and Spanish Imperial eagle.

Regulations governing the research and release of such GM biocontrols differ considerably in content and stringency from country to country. Various levels of regulations and guidelines also exist, from individual institutions to federal governments and international agreements. International agreements include the:

• Convention on Biological Diversity
• International Plant Protection Convention
  
• World Trade Organization’s Sanitary and Phytosanitary Agreement
• requirements of the World Organisation for Animal Health.

There is currently some confusion about the relevance and authority of some of these national and international instruments. It is not clear what steps researchers need to take during the development of GM biocontrols.

Concerns of using biocontrol GMOs, particularly disseminating organisms, have been raised in the recent literature and at two key conferences: the 2003 International Wildlife Management Congress in New Zealand and an online conference hosted by the Convention of Biological Diversity in 2004. The main concerns include:

• harm to valued native populations caused by the introduction (unintentional or otherwise) of GMOs originally designed to eradicate or reduce that animal in another country—for example, if the possum nematode from New Zealand entered Australia

• risks of a GMO designed to preserve a species in one country compromising pest-control programs in another—for example, if the Spanish rabbit RHD/myxomatosis vaccine entered Australia

• host specificity and safety of GM biocontrol agents

• the need for an international body to consult with and regulate the use of biocontrol GMOs.

Authors Dr Wendy Henderson (University of Canberra) and Dr Elaine Murphy (Department of Conservation, New Zealand) are both passionate about the need for transparent and careful research with biocontrol GMOs. Elaine helped organise the 2004 online conference through the Biosafety Clearance House. “These issues need to be openly recognised and discussed by researchers and decision makers alike”, she says. "If you are developing a new pest control technique that could adversely affect the biodiversity of another country, at what point do you consult with that country? Who do you consult? The process, and who takes responsibility, is not that clear."

 “The development of biocontrol GMOs that affect reproduction or immune responses could provide a sophisticated solution to a particular country’s problems”, says Wendy. “But this type of research is expensive, lengthy and contentious. It’s certainly not guaranteed of success—the CRCs’ recent research on mouse, fox and rabbit control showed that. We need to be incredibly careful about the type of GMO we release, and think about how it would affect other countries as well as our own. Once it’s out, it’s out.”

The report shows support among researchers, politicians and community members for a precautionary approach and for international consultation. But how should this consultation take place? When is a GMO safe enough to be released? Who should decide these things? It is hoped the report will stimulate further discussion of these questions, to clarify and improve on the current situation.