SENIOR ADVISOR FOR AGRICULTURAL BIOTECHNOLOGY

UNCLAS SECTION 01 OF 06 CAIRO 002165 SIPDIS SENSITIVE SIPDIS BRUSSELS FOR USDA SCOHEN AND ECON MDASTIN-VANRIJN ROME FOR USMISSION (FODAG) WBRAKEL PARIS FOR USOECD HRECINOS USDA FOR FAS BIOTECH UNIT EJONES AND BRICHEY NAIROBI FOR USAID AND UNEP E.O. 12958: N/A TAGS: EAGR ETRD ECON EFIN EINV TBIO EG SUBJECT: SENIOR ADVISOR FOR AGRICULTURAL BIOTECHNOLOGY ADVOCATES SCIENCE-BASED REGULATORY FRAMEWORK IN EGYPT AND MIDDLE EAST REF: SECSTATE 34706 This message is sensitive but unclassified. Please handle accordingly. -------------- Summary -------------- ¶1. (SBU) State Department Senior Advisor for Agricultural Biotechnology Madelyn Spirnak visited Egypt the week of February 12-18 to speak at the International Center for Agricultural Research in the Dry Areas (ICARDA),to advocate in favor of a supportive regulatory framework for agricultural biotechnology, and to urge support for U.S. positions in the negotiations in the Third Meeting of the Cartagena Protocol on Biosafety (BSP) in Curitibia, Brazil. Spirnak met with GOE representatives, including members of the legislative drafting committee for a new law implementing the BSP, as well as with private sector representatives. Although there is pressure from the private sector and some support from the Ministry of Agriculture (MOA) for the use of biotech products, some elements of the GOE have obstructed a biotech-friendly regulatory environment. End summary. -------------- Background -------------- ¶2. (U) In the 1990s, the MOA took the lead in developing Egypt's biotech laws, but over the past few years, the Ministry of Environment (MOE) has taken charge, and there are fears in the private sector that the legislation being drafted will hinder rather than promote biotech development in Egypt. The draft legislation was created by a 13-member committee that included both the MOE and the MOA, and has been submitted to the Ministry of Justice, where it awaits action. Biotech research will be governed by the MOA-led National Biosafety Committee, but commercialization decisions will be authorized by the MOE-led "High Committee on Biosafety." ¶3. (SBU) The private sector has experienced much frustration with the existing biotech approval process. The Misr Pioneer Seed Company attempted to get a biotech maize variety registered about five years ago, according to the company's managing director, but after years of unnecessary costs and delays imposed by the Variety Registration Committee, Pioneer withdrew its application. Pioneer is planning to try again to get an approval next year for two new maize varieties. (Note: Egypt imports maize as feed from the US, half of which is biotech. End note.) Monsanto, working with Fine Seeds, has also been trying to register a maize variety, but has encountered bureaucratic tangles. Monsanto also has been collaborating with the Agricultural Research Center of the MOA for five years to develop Biotech cotton seeds. These cannot be sold in Egypt until the government puts into place a workable, science-based regulatory system. -------------- Meetings with Parliament and Ministries -------------- ¶4. (SBU) In meetings and social events throughout the week, Spirnak interacted with a broad spectrum of Egyptian decision and opinion makers, including the chairmen of the Peoples' Assembly Agricultural and Science and Technology Committees, and biotech advocates such as Agricultural Genetic Engineering Research Institute (AGERI) head Dr. Hanniya El Etribi. She also met the unconvinced, including Dr. Moustafa Fouda of the Egyptian Environmental Affairs Agency (EEAA), CAIRO 00002165 002 OF 006 who is also director of the National Biosafety Program. ¶5. (SBU) In meetings with members of Parliament and with the Ministries of Agriculture (MOA),Environment (MOE),Foreign Affairs (MFA),and Trade (MOTI),Spirnak urged support for the U.S. position in the negotiations in Curitibia, and for a practical and effective implementation of the BSP. Spirnak also urged GOE representatives to ensure that Egypt's biotech laws were science-based and transparent, emphasized the cost to agricultural trade and development of impractical documentation requirements, addressed issues of liability regimes that place unreasonable burdens on biotech producers, and encouraged the GOE to ensure that all relevant ministries were represented in domestic regulatory decision-making as well as in its BSP delegation. ¶6. (SBU) Spirnak met with several agricultural officials in the GOE who are committed to the advancement of modern agricultural biotechnology. Saad Nassar, the Senior Advisor to the Minister of Agriculture, stressed the important role that his ministry has to play in the development of this technology and any legislation to regulate application of the technology. He further stressed his desire to see all concerned ministries in Egypt working cooperatively to move Egypt to the next phase of development, which is commercialization. ¶7. (SBU) Spirnak inquired about public outreach by the GOE. Saad Nassar responded that publicity campaigns should be carried out by scientists, but the Ministry is aware of the need for more positive exposure to biotechnology. He confided that his Minister was in the process of appointing new members to a biosafety committee, which had been dormant for nearly two years due to lack of interest on the part of the previous minister. Spirnak also focused attention on the meeting in Curitibia. Mr. Nasser promised to send a representative from the Ministry of Agriculture. (Note: It was later learned that only Dr. Fouda represented Egypt in the meeting. End note.) -------------- Public Speaking/Media Interviews -------------- ¶8. (SBU) The Embassy arranged numerous public speaking and media opportunities for Spirnak. She spoke on the "International Implications of Implementation of the Biosafety Protocol" at a conference sponsored by the International Center for Agricultural Research in the Dry Areas (ICARDA) February 13. At the American University in Cairo, Spirnak addressed the topic of "Journalism and Biotech" with an audience of young journalists and scientists. She also held a press roundtable with Egyptian publications El Messa, Akhbar El-Yom, The Agricultural Magazine, Al Akhbar, and Business Today. Akhbar Al-Yom's article noted that ag biotech can help the poor, but it also played up the opposition to GMOs from environmentalists and the EU. El Messa noted bilateral cooperation in biotech. Agriculture Magazine wrote a lengthier factual summary of the discussion, focusing on the need for education regarding GMOs. A television interview was aired more than seven times on Nile News in its entirety. -------------- FAO-ICARDA Conference -------------- ¶9. (SBU) Spirnak participated in the three-day FAO-ICARDA conference on BSP Implementation along with officials from Egypt, Jordan, Tunisia, Morocco, Syria, Iraq, Algeria, Lebanon, Iraq and Iran. In addition to FAO co-organizers, CAIRO 00002165 003 OF 006 UNEP-GEF officials from Geneva and Kenya attended. Spirnak's presentation focused on the costs of implementing BSP, noting the financial burdens that different documentation requirements would entail, using Egypt as an example. Other participants briefed on the status of research and regulatory framework in their countries, requesting greater regional cooperation in research and risk assessment. ¶10. (SBU) Many participants, the most outspoken of which was the Iranian, derided UNEP-GEF for its failure to include all stakeholders (farmers, trade and agriculture officials) in the process of developing national biosafety frameworks. They also voiced concern that UNEP-GEF would abandon them in the implementation stage. Iran was particularly concerned about the pre-eminent position that environment ministries have been given in the regulatory field of biodiversity; this has hampered development of the technology in the Middle East as well as in other regions. He gave a fascinating presentation on Iran's biotech rice commercialization, noting that his biotech institute suffered a ten-year setback on commercialization because of inaccurate press reports that drew attention to the project. (Note: Iran is reportedly the only country in the world to have commercialized a transgenic rice variety and the only Middle Eastern country to commercialize a transgenic crop. End note.) ¶11. (SBU) Summing up the workshop, participants agreed that they needed to "talk to each other" more and build a strong regional network of contacts. Egypt noted that it had opened up its laboratories to researchers/students from the region and suggested others do likewise. All participants stressed the need for more public information. FAO noted that there already are several resource materials produced by international organizations such as itself and the World Health Organization that could be made available in Arabic for participating countries. -------------- Meeting with Parliamentarians -------------- ¶12. (SBU) In a joint meeting with Dr. Mohamed Sherif Omar, Chairman of the Education and Scientific Research Committee of the People's Assembly, and Ismail El Ghoul, Chairman of the Irrigation and Agriculture Committee, Spirnak pressed Egypt to support a practical and effective implementation of the BSP, and explained the cost of impractical documentation requirements. She also addressed issues of liability regimes that place unreasonable burdens on biotech producers, and encouraged the GOE to ensure that all relevant ministries were represented in domestic regulatory decision-making as well as in its BSP delegation. ¶13. (SBU) Spirnak also met with Dr. Moustafa El Said, Chairman of the Economic Affairs Committee of the Assembly. El Said said he views biotechnology as a very important tool for improving agriculture production, but was not fully aware of the draft biosafety law, which he thought addressed consumer protection issues. The meetings with parliamentarians confirmed a general lack of knowledge about the government's regulation of transgenic crops and an interest in learning more in order to develop the potential of biotech for Egyptian agriculture. In particular, Dr. Sherif Omar indicated his desire for more information and contact with the Embassy on this point. He indicated that Egypt should pursue a regulatory path similar to that of the United States. -------------- Egyptian Decision-makers Remain Unconvinced -------------- CAIRO 00002165 004 OF 006 ¶14. (SBU) During a well-attended dinner hosted by the DCM, Dr. Fouda of the EEAA stated that he opposed biotech on religious grounds, that he did not want to be known as the man who unleashed a disaster on his country by being under-cautious, and insisted that not enough was known about the safety of biotech products to allow them to be marketed in Egypt. ¶15. (SBU) In a later meeting with Fouda and Dr. Osama El Tayeb, Advisor to the MOE on biosafety and one of the principal drafters of the biosafety regulations, Fouda shifted position, stating that he is actually very keen to develop biotech in Egypt, but only if it is developed according to the law and for the good of the Egyptian people. Fouda said that issues such as documentation and liability under the BSP are still being negotiated but Egypt will continue to follow a precautionary approach in negotiations. Although Fouda acknowledged that biotech could be approved now under current law, and does not have to wait for the new law to be passed, he admitted that approvals have been held up. He also said that approvals would take longer once the new law is in place. Fouda and Osama confirmed that current draft legislation is now at the Ministry of Justice and will later be sent to the Cabinet. Issues of documentation and labeling are still being discussed. ¶16. (SBU) Fouda said the most important factor for him was that approval of biotech products be completely transparent, and reiterated his fear that he will be condemned 20 years from now if he makes the wrong decision. Spirnak agreed that transparency in a science-based decision-making process was necessary to create public confidence in the regulatory system. She also urged Fouda and El Tayeb to look at the positive track record of biotech crops over the past ten years, including increased yields and environmental benefits. Despite the positive results to date, El Tayeb said he remains unconvinced that the safety of biotech has been proven. ¶17. (U) At the Ministry of Foreign Affairs, Spirnak pressed these issues, and also addressed the issues of liability and damages. The MFA's Environmental Counselor Omar Ali Abou Eiche said he remains cautious, stating that ten years of use of biotech in the U.S. is not enough to prove safety. -------------- Private Sector Favors Biotech -------------- ¶18. (SBU) In separate meetings with industry representatives from Pioneer, Monsanto, and the Egyptian Seed Association, Spirnak heard complaints that the GOE has not moved forward with legislation, and has held up approvals for biotech products despite having no legal grounds for denial. Spirnak met wit Mr. Ahmed Kamel, CEO of Pioneer Egypt and Dr. Azmi Iskander, also of Pioneer, and with Samir El Naggar, Chairman of the Egyptian Seed Association. The industry representatives speculated that Fouda may fear foreign technology, and suspects that biotech firms have an underlying agenda harmful to Egyptian agriculture that has not yet been exposed. Another possible fear is that seeds will be too expensive for small farmers. A third possibility is that approval is being held back until there is an "Egyptian seed," i.e., Egyptian biotech products that can compete with existing biotech seeds. Although Fouda has stated that he is waiting for all the data to be in, the private sector representatives said they had provided him with volumes of data. They also believe that existing laws permit the marketing of biotech products consistent with the BSP. They complained that the biotech impasse has been going CAIRO 00002165 005 OF 006 on for many years, with breakthroughs often seeming imminent, but without ultimate resolution. ¶19. (SBU) Some suggested that scientists at the Agriculture Research Center (ARC) are the real opponents to liberalization in Egypt, because ARC's "special units," who decide on the release of seeds by private sector firms (members of the Seed Registration Committee),also produce their own biotech products that would compete with the private sector. ¶20. (SBU) Kamel and El Naggar indicated a need for development of a new seed law that would allow practical application of biotechnology in agriculture. Kamel also admitted the private sector didn't do enough to get the message to the general public. ¶21. (SBU) According to Kamel, the EU had hurt itself with heavy-handed tactics in attempting to impose its views on labeling of biotech products on developing nations. EU biotech policies, they added, also may harm Egypt's agricultural exports to European countries. -------------- -------------- Ministry of Health Seeks Assistance in Risk Assessment -------------- -------------- ¶22. (U) Spirnak met with Dr. Azza Gohr, Director of the Nutrition Research Institute, which is affiliated with the MOHP, and with Dr. Mohammed Fahmi Seddik member of the National Biosafety Committee and a senior member at the institute. Dr. Seddik indicated that the drafting committee is still reviewing the draft biosafety law, with particular regard to certain definitions and labeling issues. The institute is responsible for the risk assessment of food products. Dr. Gohr noted the Institute's cooperation with the U.S. FDA in the area of nutrition and favors the expansion of such cooperation, particularly in training of her new, young staff responsible for conducting risk assessments. -------------- -------------- Conclusion: Sustained Focus on Egypt May Benefit Biotech -------------- -------------- ¶23. (SBU) Comment: Although Egypt has been developing its biotech capabilities for some time, there are factors that have impeded biotech-friendly legislation allowing the private sector, including U.S.-owned companies, to market their products. Egypt is a signatory to the BSP, but has yet to promulgate regulations implementing it. The Ministry of Agriculture (MOA) and AGERI have generally advocated biotech-friendly laws, but the new laws are being drafted by an inter-ministerial committee. On the other side of the issue, the EEAA continues to block progress on a biosafety law because of its anti-biotech position. ¶24. (SBU) Comment continued: There are other factors that may influence Egypt's stance on biotech, but it is difficult to discern their impact. The EU's precautionary approach and strict traceability and labeling regime inhibit some agricultural producers in Egypt. There are some indications that AGERI itself is holding back legislation until it is ready to release its own biotech products. During the course of Spirnak's visit, even biotech advocates voiced strongly patriotic sentiments, with preference stated for an "Egyptian seed" that has not yet been developed. Also, GOE ministers and other bureaucrats often have a financial stake in assets they control through regulation. ¶25. (SBU) Comment continued: Although the regulatory CAIRO 00002165 006 OF 006 impasse has continued for years, post believes Egypt could benefit from continued focused attention on the biosafety law at the legislative level in order to keep the issue of biotech's benefits to Egypt alive and prevent obfuscation of the matter at the ministerial level. Continued regulatory cooperation, especially with the Health Ministry, which could serve as a positive element in the ministerial drafting process, would help to broaden support for a science-based risk assessment and regulatory framework. End comment. ¶26. (U) Senior Advisor Spirnak cleared this message. RICCIARDONE