Identifier
Created
Classification
Origin
05GABORONE568
2005-04-21 17:18:00
UNCLASSIFIED
Embassy Gaborone
Cable title:  

SADC'S ROLE IN BIOTECHNOLOGY AND BIOSAFETY IN THE

Tags:  EAGR ECON ETRD TBIO KPAO SENV EAID BC 
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211718Z Apr 05
UNCLAS SECTION 01 OF 03 GABORONE 000568 

SIPDIS

STATE FOR AF/S, AF/EPS, OES/ETC AND EB/TPP/ABT
PRETORIA FOR FAS

E.O. 12958: N/A
TAGS: EAGR ECON ETRD TBIO KPAO SENV EAID BC
SUBJECT: SADC'S ROLE IN BIOTECHNOLOGY AND BIOSAFETY IN THE
SOUTHERN AFRICAN REGION

REFS: A) Pretoria 1256; (B) 04 Gaborone 2069; (C) 04

Gaborone 1937; (D) 04 Gaborone 1318 (NOTAL)

Summary
-------

UNCLAS SECTION 01 OF 03 GABORONE 000568

SIPDIS

STATE FOR AF/S, AF/EPS, OES/ETC AND EB/TPP/ABT
PRETORIA FOR FAS

E.O. 12958: N/A
TAGS: EAGR ECON ETRD TBIO KPAO SENV EAID BC
SUBJECT: SADC'S ROLE IN BIOTECHNOLOGY AND BIOSAFETY IN THE
SOUTHERN AFRICAN REGION

REFS: A) Pretoria 1256; (B) 04 Gaborone 2069; (C) 04

Gaborone 1937; (D) 04 Gaborone 1318 (NOTAL)

Summary
--------------


1. Biotechnology can play a key role in economic and social
development in the Southern African region. Agricultural
technologies, including genetic modification, have the
potential to increase food production over the next 50 years
and help fight regional hunger. Progress is being made in
some Southern African Development Community (SADC)
countries. However, SADC itself is only slowly addressing
the issue of biotechnology, preferring to leave
biotechnology policy up to individual states. Until SADC is
ready to engage on biotechnology in a more meaningful
manner, we need to advance USG biotechnology interests
through bilateral interventions. End summary.

SADC Institutional Arrangements
--------------


2. In 2003, a Southern African Development Community (SADC)
Advisory Committee on Biotechnology (SACB) was created to
advise the SADC Council of Ministers on emerging
technologies. SACB was established as an independent body
composed of experienced specialists, including molecular
biologists, biotechnologists, biochemists, plant breeders,
animal breeders, veterinarians, environmental and trade
experts, health experts and members of the civil/consumer
society from the SADC region. It is housed in the Food,
Agriculture and Natural Resources Directorate at the SADC
Secretariat in Gaborone. Experts appointed to this

SIPDIS
Committee serve in their personal capacity; the views
expressed are not binding on SADC and member states unless
appropriate SADC authorities endorse them.


3. The first set of guidelines on genetically modified
organisms and biotechnology was approved in August 2003 at
the Integrated Committee of Ministers meeting in Dar-es-
Salaam. Recently, SACB has developed a draft SADC Framework
on the Safe Handling and Transboundary Movement of
Genetically Modified Organisms. The Framework details the

processes that must be followed, including informed
agreements, notifications, information required, packaging,
identification and labeling for import and export of
genetically modified organism products.


4. The SADC Secretariat plans to appoint a SADC
Biotechnology and Biosafety Focal Point, who will be
responsible for coordinating and overseeing SADC's regional
activities in biotechnology and biosafety, including
establishing and managing a clearing-house mechanism,
resource mobilization and utilization, and capacity
building. National focal points under the Cartagena
Protocol on Biosafety will serve as focal points in member
states under the framework. (Note: This appointment has not
yet been made.)

Status of Biosafety in SADC Member States
--------------


5. The acceptance of biotechnology is slowly gaining
momentum in some SADC member states as countries realize the
potential it offers for sustainable food production that
will help combat famine and poverty. South Africa has
introduced genetically modified crops to help feed its
people, leading SADC countries in acreage of genetically
engineered crops such as maize and soybeans (which, together
with genetically modified cotton, totaled between 700,000
and 1 million hectares in 2004). A number of universities
and institutions in South Africa are involved in research,
as is the National Agricultural Research Center.


6. Namibia, South Africa and Zimbabwe have legally binding
biosafety frameworks in place already, while Angola,
Botswana, Lesotho, Mauritius, Mozambique, Swaziland,
Tanzania and Zambia are working on draft legislation.
Botswana is in the process of finalizing a national
framework on biosafety (Refs C & D),which will include
policies as well as legal, administrative and technical
instruments to ensure safety for the environment and human
health. USAID/RCSA is working with the Malawian government
to produce a biosafety protocol.

Regional Initiatives
--------------


7. There are a number of bodies and institutions in the
Southern African region that are working on public awareness
and dissemination of biosafety information in most member
states. AfricaBio is a non-governmental, non-political and
non-profit biotechnology organization based in South Africa
that advocates for stakeholders in the research and
development, production, processing and consuming sectors.
The bulk of its funding has been from Monsanto and other
private sector companies. (Note: USAID has provided funding
for training and capacity building activities.)


8. The United Nations Environment Program Global
Environment Fund began a global project on development of
national biosafety frameworks in 2001. The SADC countries
participating are Mozambique, Lesotho, Botswana, Swaziland,
South Africa, Tanzania, Zimbabwe and Malawi. The project
uses a country-driven process to set up biosafety
frameworks, and promotes regional and sub-regional exchange
of experiences on issues relevant to national biosafety
frameworks.

9. The New Partnership for Africa's Development (NEPAD)
Steering Committee on Science and Technology resolved in
July 2004 that its Secretariat and the African Union (AU)
would establish a high-level panel of experts to prepare a
comprehensive African strategy and common position on
biotechnology. NEPAD's South Africa-based Science and
Technology Advisor, Dr. John Mugabe, subsequently
established a NEPAD biotechnology advisory panel for African
policymakers and staffed the NEPAD Science and Technology
Unit with a Biosciences Policy Advisor, Professor Aggrey
Ambali.


10. In July 2004, Mozambique hosted an International
Conference on Hunger, Food Aid and Genetically Modified
Organisms to strengthen the understanding of genetically
modified food aid and hunger by sharing information and
starting a real dialogue among the various stakeholders.
Consumer organizations, NGOs and government policy-makers
participated in the conference.

U.S. Government Assistance
--------------


11. The U.S. sponsored a biotechnology fact-finding mission
for SADC member states in 2003 as well as a trip
specifically for Zambia in 2002. USAID's Agricultural
Biotechnology Support Project also funds the South Africa-
based Southern African Regional Biosafety Program, which has
seven target countries -- Mauritius, Mozambique, Malawi,
Namibia, South Africa, Zambia and Zimbabwe. The project
organizes workshops and training courses on innovation
biotechnology, risk assessment and biosafety research. In
November 2004, USAID and State/EB cosponsored a seminar --
organized by AfricaBio -- on food aid and biotechnology for
representatives of several Southern African countries.


12. A significant amount of work has been accomplished on a
bilateral basis in the SADC region. Embassy Pretoria has
conducted an active campaign in support of biotechnology,
including study tours, speakers, small research grants by
USAID for biotechnology projects, and hosting an Embassy
Science Fellow with biotechnology regulatory experience (who
also traveled to Botswana to advise Botswana's National
Biosafety Committee). In October 2004, Congressman Steve
King, the Department of State and USDA/FAS sponsored a study
tour of Washington, DC and Iowa for three biotechnology
experts who are leading the Government of Botswana's efforts
to establish a national biosafety policy (Ref C).

Resistance and Barriers
--------------


13. Despite the benefits biotechnology can bring, SADC
member states are concerned that the use of genetically
modified organisms carries environmental risks, including
cross-pollination of genetically modified and non-
genetically modified crops, herbicide tolerance and insect-
resistance, elimination of non-target species of ecological
importance, and uptake of genetic inserts by micro-
organisms. Other matters that generally remain unresolved
include implementing national biosafety regulations,
building capacity to effectively monitor and enforce
biosafety regulations, reaching agreement on the labeling of
products, ensuring intellectual property rights, and
negotiating trade agreements. The region also lacks
infrastructure such as laboratories and research stations to
investigate and monitor genetically modified organism
products.


14. The importation of genetically modified food aid has
been a growing controversy in southern Africa since 2000
when Malawi, Mozambique, Zambia and Zimbabwe refused to
accept genetically modified food aid offered by the U.S. and
the World Food Program (WFP) -- despite being faced with
critical food shortages. In 2004, the Angolan Government
demanded that imported genetically modified grain be milled
before being distributed, claiming this would protect the
diversity of its plant genes. Earlier this year, press
reports indicated that the Angolan Cabinet had decided to
ban the import of all genetically modified organisms, with
the exception of milled grain imported as food aid. Even in
South Africa, the region's leading grower of genetically
modified crops, local conditions for the approval and use of
agricultural biotechnology and genetically modified
organisms may be worsening (Ref A).


15. In 2004, biotech discussions with high-level Government
of Botswana officials revealed significant political
opposition to genetically modified agricultural products,
despite strong support of biotechnology by President Festus
Mogae (Ref D). Post's subsequent biotechnology outreach
activities (para 11) may have begun to turn the tide, at
least within the technical cadre.


16. The SADC Guidelines on Genetically Modified Organisms,
Biotechnology and Biosafety of 2003, state that food aid
consignments involving grain or any propagative plant
material that may contain genetically modified organisms
should be milled or sterilized prior to distribution. This
policy has been reiterated in the draft SADC framework on
the safe handling and transboundary movement of genetically
modified organisms.


17. Public awareness in the region is very low. Member
states see challenges in engaging the public created by the
costs of disseminating information, traditional farming
systems, traditional social and cultural factors, commercial
competition and confidentiality issues, and external
influences advocating against biotechnology.

Comment: Challenges Face the Region
--------------


18. Although biotechnology is a science, it has migrated
into the political, ethical and public perception arenas in
Southern Africa. There is a need to build capacity within
SADC member states to make science-based decisions regarding
the technology and provide accurate information to the
public. SADC recognizes that biotechnology can dramatically
improve food security in the region. However, in spite of
USG and other assistance, it is only slowly addressing the
issue (witness the delay in appointing a SADC Biotechnology
and Biosafety Focal Point),preferring to leave it up to
individual states to safeguard the interests of consumers,
producers, exporters and other relevant stakeholders in
Southern Africa. Until SADC is ready to engage on
biotechnology in a more meaningful manner, we need to
advance USG biotechnology interests through bilateral
interventions.

HUGGINS