Societal Concerns and the Societal Concerns and the Precautionary PrinciplePrecautionary Principle

Doubt, Risk, and Science: Where Do Doubt, Risk, and Science: Where Do We Go from Here? We Go from Here?

The Precautionary PrincipleThe Precautionary Principle

Workshop on Societal Concerns “Dealing with Uncertainty, precaution vs. science – polar opposites or a continuum”

“purpose is to provide a venue for discussion of issues outside of the usual format”

Complex Topic, Difficult Policy DecisionsComplex Topic, Difficult Policy Decisions

• Google:

• Precautionary Principle 602,000 hits

• Societal Concerns: 3,370,000 hits

• Sex: 49,000,000 hits

Societal Concerns: DefinitionSocietal Concerns: Definition

• Difficult….

“Crafting a universally applicable, comprehensive, and analytically tractable nomenclature of (ever evolving) societal concerns whose occurrence is at the farm level is a moving target. It should be stressed that just as defining societal concerns can be subject to subjective opinions, their classification suffers from the same shortcoming.”

(OECD - The Trade and Trade Policy Implications of Different Policy Responses to Societal Concerns)

Societal Concerns: DefinitionSocietal Concerns: Definition

“… the risks or threats from hazards which impact on society and which, if realised, could have adverse repercussions for the institutions responsible for putting in place the provisions and arrangements for protecting people, e.g. Parliament or the Government of the day.”

OECD 2009 - from Ball and Boehmer-Christiansen (2002)

Precautionary Principle: DefinitionPrecautionary Principle: Definition

• Rio Earth Summit 1992 Principle 15

Where there are threats of serious or irreversible damage, lack of full scientific certainty shall not be used as a reason for postponing cost- effective measures to prevent environmental degradation.

PRECAUTIONARY PRINCIPLE:PRECAUTIONARY PRINCIPLE:

• The U.S. Position is well known…

“the United States submits – precaution is not a principle of international law …

precaution cannot even be defined”

July 29, 2004 – Executive Summary Submission of the Rebuttal Submission of the United States – WTO vs. European Communities

But…But…

• chief veterinary officer for the USDA, characterized the decision as "acting out of an abundance of caution." *

USDA Press Conferences, December, 2003

*Provisional Measure

Merriam-Webster says:Merriam-Webster says:

• Precaution: a measure taken beforehand to prevent harm or secure good

• Caution: prudent forethought to minimize risk

Precaution vs. RiskPrecaution vs. Risk

“the precautionary principle, for all its

rhetorical appeal, is deeply incoherent … there

are always risks on both sides of a decision;

inaction can bring danger, but so can action.

Precautions, in other words, themselves

create risks – and hence the principle bans

what it simultaneously requires.”

Cass Sunstein (2008)

Policy on Biotechnology in the United StatesPolicy on Biotechnology in the United States

-- Policy formulation: 1986 - Coordinated Framework for -- Policy formulation: 1986 - Coordinated Framework for Regulation of Biotechnology under the Executive Office of the Regulation of Biotechnology under the Executive Office of the PresidentPresident

-- Environment Protection Agency, Food and Drug Agency, -- Environment Protection Agency, Food and Drug Agency, Dept. of Agriculture, National Institute for Health, National Dept. of Agriculture, National Institute for Health, National Science FoundationScience Foundation

-- Burden of Proof – Applicant Information reviewed by -- Burden of Proof – Applicant Information reviewed by regulatory authoritiesregulatory authorities

What is the Role of U.S. Society?What is the Role of U.S. Society?

-- Open and transparent process for public comment

(Federal Register)

-- Civil Litigation

Private citizens vs. Government (Alfalfa, Sugarbeets)

Private citizens vs. citizens, corporations

-- “Town Hall Meetings” by FDA

-- Legislative Process and private citizen input

U.S. Policy and Regulation of BiotechnologyU.S. Policy and Regulation of Biotechnology

-- Also Includes Concerns of Society

-- Consistent with International Trade (WTO)

-- A risk, science, societal continuum

Societal Concerns and the Precautionary Societal Concerns and the Precautionary PrinciplePrinciple

• Precautionary Principle: Not enough science for Risk Assessment

• Societal Concerns: Risk Assessment and Cost/Benefit Analysis based on science cannot capture concerns of society anyway

• Where does that leave us?

Key Challenges: Meeting Future Food Needs, Key Challenges: Meeting Future Food Needs, Adjusting to Climate Change, and Preserving the Adjusting to Climate Change, and Preserving the

EnvironmentEnvironment

Where do we go from here?Where do we go from here?

• Governments: Responsibility for how risks are perceived by society – (Risk Communication for A/H1N1)

• Behavioral Economics - - The framing of the problem affects the outcome by the decision maker ( a member of society)

• Marketing, Advertising – Private Sector - consumers preferences routinely identified and quantified

Where do we go from here?Where do we go from here?

• How do we identify, quantify, and analyze Societal Concerns, as we do with other economic and trade issues?

• Can OECD CoAg provide guidance to governments on Societal Concerns?

• Does OECD have the competitive advantage to consider and develop analytical frameworks or policy guidance regarding Societal Concerns?

Thank YouThank You

The

End

(or just another step?)

Additional Slides:Additional Slides:

Concerning the need for new Agronomic Technologies

Biotechnology helps reduce chemical input usage in U.S. Biotechnology helps reduce chemical input usage in U.S. corn productioncorn production

Herbicide and insecticide use

1.5

1.7

1.9

2.1

2.3

2.5

2.7

2.9

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005

Herb

icid

e po

unds

of a

ctiv

e in

gred

ient

s pe

r acr

e

0

0.05

0.1

0.15

0.2

0.25

0.3

Inse

ctic

ide

poun

ds o

f act

ive

ingr

edie

nt

per a

cre

Insecticide Herbicide

Source: USDA/NASS, Agricultural Chemical Usage Report

Prepared by OGA/FAS/USDA

Fertilizer use

3.75

3.95

4.15

4.35

4.55

4.75

4.95

5.15

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006Fe

rtiliz

er po

unds

per b

ushe

l

Source: USDA/ERS

Poll of 1,000 toxicologists:Poll of 1,000 toxicologists:

Precautionary Principle: Precautionary Principle:

Scope of Application? -- Biotechnology, Climate Change

(2 cases, resulting in inaction and action)

What about:second hand smoke, cellular telephones, airline safety, (airline

pilot pay vs. investment banker pay), nuclear power, radon, environmental contaminants, etc.?

Why Biotechnology?Why Biotechnology?

Herbicide Use

0

50

100

150

200

250

300

350

400

450

500

1960 1965 1970 1975 1980 1985 1990 1995 2000 2005

Mil

lio

n p

ou

nd

s a

cti

ve i

ng

red

ien

t

Source: USDA NASSSource: USDA NASS

Economic Benefits in AfricaEconomic Benefits in Africa

On a much wider scale, there are about 2.5 million hectares planted to cotton in Africa, most on small plots of less than 10 ha. …If there was widespread use of Bt varieties across the continent, it could generate additional incomes of about six billion rand, or US$600 million, for some of the world’s poorest farmers.”

(Colin T., L. Beyers, et.al., 2003. “Can GM-Technologies Help the Poor? The Impact of Bt Cotton in Makhathini Flats, KwaZulu-Natal”, World Development 31 (4)

Societal Concerns and the Societal Concerns and the Precautionary PrinciplePrecautionary Principle

--Responsibility of governments to manage perception of risks (as in A/H1N1)

--Ethical questions – Are “the few(1)” coercing the many(2), or “the few(2)” depriving the many(2)?

The few(1) = the biotechnology industry

The many(1) = consumers

The few(2) = biotech spurning consumers in wealthy countries

The many(1) = the 1 billion poverty stricken and malnourished