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Steering Committee on Global Challenges and Directions for
Agricultural Biotechnology: Mapping the Course
Board on Agriculture and Natural Resources
Board on Life Sciences
Division on Earth and Life Studies
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THE NATIONAL ACADEMIES PRESS 500 Fifth Street, N.W. Washington, DC 20001
NOTICE: The project that is the subject of this report was approved by the Gov-
erning Board of the National Research Council, whose members are drawn from
the councils of the National Academy of Sciences, the National Academy of Engi-
neering, and the Institute of Medicine. The members of the committee responsible
for the report were chosen for their special competences and with regard for
appropriate balance.
This workshop was supported by the U.S. Department of State Award No. S-
LMAQM-03-M-4207 and the National Academies. Any opinions, findings, and
conclusions or recommendations in this document are those of the authors and
do not necessarily reflect the views of the organizations or agencies that provided
support for the project. Mention of trade names, commercial products, or organi-
zations does not constitute their endorsement by the sponsoring agency.
International Standard Book Number-13: 978-0-309-12077-7
International Standard Book Number-10: 0-309-12077-2
Additional copies of this report are available from the National Academies Press,
500 Fifth Street, NW, Lockbox 285, Washington, DC 20055; (800) 624-6242 or (202)
334-3313 (in the Washington metropolitan area); Internet, http://www.nap.edu.
Copyright 2008 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America.
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The National Academy of Sciences is a private, nonprofit, self-perpetuating
society of distinguished scholars engaged in scientific and engineering research,
dedicated to the furtherance of science and technology and to their use for the
general welfare. Upon the authority of the charter granted to it by the Congress
in 1863, the Academy has a mandate that requires it to advise the federal govern-
ment on scientific and technical matters. Dr. Ralph J. Cicerone is president of the
National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter
of the National Academy of Sciences, as a parallel organization of outstanding
engineers. It is autonomous in its administration and in the selection of its mem-
bers, sharing with the National Academy of Sciences the responsibility for advis-
ing the federal government. The National Academy of Engineering also sponsors
engineering programs aimed at meeting national needs, encourages education
and research, and recognizes the superior achievements of engineers. Dr. Charles
M. Vest is president of the National Academy of Engineering.
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Sciences to secure the services of eminent members of appropriate professions
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Dr. Harvey V. Fineberg is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of
Sciences in 1916 to associate the broad community of science and technology
with the Academy’s purposes of furthering knowledge and advising the federal
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National Academy of Sciences and the National Academy of Engineering in pro-
viding services to the government, the public, and the scientific and engineering
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Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and
vice chair, respectively, of the National Research Council.
www.national-academies.org
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STEERING COMMITTEE ON GLOBAL CHALLENGES
AND DIRECTIONS FOR AGRICULTURAL
BIOTECHNOLOGY: MAPPING THE COURSE
CALESTOUS JUMA, Chair, Harvard University, Cambridge,
Massachusetts
DEVIN M. BARTLEY (through May 2004), United Nations Food and
Agricultural Organization
EDWARD GROTH III, Groth Consulting Services, Pelham, New York
RICHARD R. HARWOOD, Michigan State University, East Lansing
LUIS HERRERA-ESTRELLA, National Polytechnic Institute Irapuato,
Guanajuato, Mexico
RICHARD A. JEFFERSON (through August 2004), Center for the
Application of Molecular Biology to International Agriculture
PETER M. KAREIVA (through October 2004), The Nature Conservancy,
Seattle, Washington
BARBARA A. SCHAAL, Washington University, St. Louis, Missouri
BARBARA O. SCHNEEMAN (through July 2004), U.S. Food and Drug
Administration, College Park, Maryland
JENNIFER THOMSON (through April 2005), University of Cape Town,
South Africa
GREG TRAXLER, Auburn University, Alabama
JOSE A. ZAGLUL, Earth University, San José, Costa Rica
Project Staff
ROBIN SCHOEN, Study Director
PEGGY TSAI, Associate Program Officer
KAREN L. IMHOF, Administrative Assistant
KIM WADDELL, Study Director (through May 2004)
CHARLOTTE KIRK BAER, Study Director (May–October 2004)
MICHAEL KISIELEWSKI, Research Associate (through May 2004)
NORMAN GROSSBLATT, Senior Editor
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BOARD ON AGRICULTURE AND NATURAL RESOURCES
W. REG GOMES, Chair, University of California (Emeritus), Oakland
ROGER N. BEACHY, Donald Danforth Plant Science Center, St. Louis,
Missouri
H.H. CHENG, University of Minnesota (Emeritus), St. Paul
DANIEL M. DOOLEY, University of California, Oakland
JOAN H. EISEMANN, North Carolina State University, Raleigh
KIRK C. KLASING, University of California, Davis
VICTOR L. LECHTENBERG, Purdue University, West Lafayette,
Indiana
ROBERT PAARLBERG, Wellesley College, Watertown, Massachusetts
KEITH PITTS, Curragh Oaks Consulting, Fair Oaks, California
HAL SALWASSER, Oregon State University, Corvallis
PEDRO A. SANCHEZ, The Earth Institute at Columbia University,
Palisades, New York
NORMAN R. SCOTT, Cornell University, Ithaca, New York
Staff
ROBIN SCHOEN, Director
KAREN L. IMHOF, Administrative Assistant
EVONNE TANG, Senior Program Officer
AUSTIN J. LEWIS, Program Officer
CAMILLA YANDOC ABLES, Associate Program Officer
PEGGY TSAI, Associate Program Officer
JANET MULLIGAN, Research Associate
RUTH S. ARIETI, Senior Program Assistant
i
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Preface
T
he advent of agricultural biotechnology was marked by a wide
array of debates inspired by concerns about safety. Those concerns
were shaped by public perceptions that tended to emphasize the
risks associated with agricultural biotechnology. Although the concerns
were justified and had to be taken seriously, they tended to downplay
the potential benefits of the technology. Moreover, much of the debate
about agricultural biotechnology was shaped by advocacy efforts aimed
at particular policy objectives.
This committee was charged with framing the biotechnology debate
in terms of problem solving. Its focus was to identify important current
and emerging global problems and then explore the possible application
of biotechnology as one of many approaches to ease the problems, recog-
nizing that all new technologies carry scientific and socioeconomic risks.
However, failing to use the technologies where they show potential
benefit also may be a risky strategy. Thus, the committee felt that the sci-
entific risks and socioeconomic issues associated with biotechnology need
to be examined in the context of technology’s role in addressing long-
term goals, such as preserving biodiversity, conserving natural resources,
achieving food security, improving the health of populations, cleaning
up polluted lands and bodies of water, and obtaining adequate sources
of energy.
That approach will continue to be relevant in light of uncertainties
associated with global efforts to respond to challenges arising from global
change. Agricultural biotechnology embodies a set of generic tools that
ii
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iii PREFACE
offer options for addressing persistent and emerging economic, social,
and ecological problems. Failing to explore the potential value of such
technologies suggests that doing nothing is safer than trying new tech-
nologies, an assumption that may be as misleading as the exuberance with
which the benefits of new applications are sometimes described.
In the interest of open-mindedness and knowledge-based approaches
to decision making, it is the hope of the committee that this workshop
report reflects an effort to balance concerns about the risks that attend
new technologies with the seriousness of the problems we face. The
potential value of such technologies is great, and as technologies continue
to advance, the issues raised at the workshop will remain in the forefront
for some time to come. We hope that this workshop report will serve as a
source of inspiration for more detailed explorations of technologies that
can then serve to address global challenges.
Calestous Juma, Chair
Steering Committee on Global Challenges and
Directions for Agricultural Biotechnology:
Mapping the Course
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Acknowledgments
This report is a product of the cooperation and contributions of many
people. The committee would like to thank all the speakers and partici-
pants who attended the workshop on October 25-26, 2004. Their presenta-
tions helped to set the stage for the fruitful discussions in the sessions that
followed. Harrison Wein prepared an initial summary of the workshop,
which was useful to the committee in writing this report.
This workshop report has been reviewed in draft form by persons
chosen for their diverse perspectives and technical expertise in accordance
with procedures approved by the National Research Council’s Report
Review Committee. The purpose of the independent review is to provide
candid and critical comments that will assist the institution in making
its published report as sound as possible and to ensure that the report
meets institutional standards of objectivity, evidence, and responsiveness
to the study charge. The review comments and draft manuscript remain
confidential to protect the integrity of the deliberative process. We wish
to thank the following for their review of this report:
Anthony J. Cavalieri, U.S. Agency for International Development
Robert J. Frederick, U.S. Environmental Protection Agency
Jean Halloran, Consumers Union
Tilahun D. Yilma, University of California, Davis
Although the reviewers listed above have provided constructive com-
ments and suggestions, they were not asked to endorse the workshop
ix
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x ACKNOWLEDGMENTS
report nor did they see the final draft of the report before its release. The
review of this report was overseen by Dr. Charles J. Arntzen, Arizona
State University. Appointed by the National Research Council, he was
responsible for making certain that an independent examination of this
report was carried out in accordance with institutional procedures and
that all review comments were carefully considered. Responsibility for
the final content of this report rests entirely with the author committee
and the institution.
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Contents
SUMMARY 1
1 INTRODUCTION 5
Workshop Organization, 6
Organization of the Report, 8
2 OPPORTUNITIES FOR APPLYING BIOTECHNOLOGY 9
Improving Crop Productivity, 10
Improving the Nutritional Value of Crops, 14
Improving Food Security, 15
Protecting and Preserving Biodiversity, 17
Enhancing Natural Resource Conservation, 19
3 CHALLENGES AND FUTURE CONSIDERATIONS IN 21
REALIZING THE GLOBAL POTENTIAL OF
AGRICULTURAL BIOTECHNOLOGY
Challenge 1: Developing Appropriate and Affordable
Technologies, 22
Challenge 2: Determining Priorities for Biotechnology, 25
Challenge 3: Engaging the Citizenry, 27
Challenge 4: Building Scientific and Local Capacity, 31
Challenge 5: Developing Sustainable Partnerships, 33
Challenge 6: Engaging in Global Dialogue on Agreements and
Protocols, 35
xi
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xii CONTENTS
Challenge 7: Anticipating Future Needs and Directions, 43
Closing Thoughts, 45
REFERENCES 47
APPENDIXES
A Steering Committee Biosketches 51
B Workshop Agenda 55
C List of Workshop Participants 59
BOXES
1-1 Statement of Task, 7
2-1 Selected Opportunities for Applying Biotechnology, 11
2-2 Some Tools of Biotechnology (Apart from Genetic Engineering), 12
3-1 The Most Promising African Farming Systems for Increasing Food
Security, 23
3-2 International Agreements on Biodiversity and Biosafety, 36
3-3 The Agreement on Trade-Related Aspects of Intellectual Property
Rights (TRIPS), 40
3-4 Organizations that Promote Access to Research and Transfer
Technology, 44
