Caught in the headlights: New Zealanders' reflections on possums, control options and genetic engineering

Report summary

This study explores the interactions between science, regulatory agencies and communities. And considers views about a range of possum biocontrol options, most of which involve genetic engineering, that are currently being researched in New Zealand.

Commissioner's preface

If science fails to engage with society, to listen to communities' concerns, and to jointly develop the needed research questions, there may be a high probability that any resultant technologies would be rejected. The expectations for public involvement are only heightened by the introduction of genetic technologies into the possible toolbox of possum control methods.

Executive summary

This investigation, undertaken in association with Manaaki Whenua-Landcare Research and AgResearch, explores the range of perceptions, views and values of the New Zealand public about the use of biocontrol methods to control possums. The study developed from New Zealand's experiences with the rabbit haemorrhagic virus-disease (a rabbit biocontrol), and the fact that most of the methods currently being researched by the Crown Research Institutes for possum biocontrol involve genetic engineering. The establishment of the Royal Commission on Genetic Modification occurred mid-way through this project.

Key issues

• Addressing public concerns about biocontrol technologies will require researchers and decision-makers to recognise and take into account a broad range of factors - including social, philosophical, ethical and economic aspects, the values and rights of tangata whenua, and the wider global contexts - in addition to the quantification of benefits and risks by science.
• Issues raised in my consultation included: safety, specificity to the target pest, the extent of what is yet unknown in genetic science, perceived controllability of the technology, the risks of unforeseen adverse effects, humaneness and animal welfare, New Zealand's "clean, green" image in overseas markets, the need to protect taonga of tangata whenua including spiritual and metaphysical dimensions, and the need to protect the integrity and viability of New Zealand's indigenous flora and fauna.
• The general public and tangata whenua expect to be involved and to have their concerns heeded in the evaluation and decision-making processes for such new technologies.
• There is enormous demand for information to help people understand the implications of genetic science and its possible applications in the New Zealand environment.
• Building trust between science and society is a critical imperative. There is urgent need for significantly increased investment in social research and communication.

Recommendations

While there is recognition of the need for a better interface between science and society, the research into this need, and development of mechanisms to address it, are inadequate. These recommendations are aimed therefore at reinforcing some current initiatives and encouraging substantive actions on critical deficiencies.

Recommendations to the Minister of Research, Science and Technology in association with the Ministers of Agriculture, Biosecurity, Conservation, Crown Research Institutes and Maori Affairs

1. To investigate the effectiveness of the uptake or application of publicly funded research on pests, such as the possum. To investigate, in the case of possum biocontrols, the specific adequacy of processes to translate research into product development programmes and, ultimately, technologies for approval and registration.
2. That there be a substantive increase in research into the interface between biocontrol technology, including genetic engineering, and New Zealand society. Areas requiring research include:
   • The ethical, moral and spiritual dimensions involved in using genetic engineering for pest control, including the values and beliefs of different groups and sectors within society and of tangata whenua;
   • The economic implications of the various options for possum control in New Zealand (including 1080 and possible future GE biocontrols), including: the costs of current management and of research; the risks to the viability of our overseas trade; and the economic risks possums pose to New Zealand;
   • Frameworks for liability for any adverse or unintended effects of biocontrols; and
   • The Treaty of Waitangi implications, especially in relation to the WAI 262 claim to the Waitangi Tribunal.

Recommendations to the Ministers of Agriculture and Conservation in association with the Ministers for the Environment, Biosecurity, Research, Science and Technology, and Maori Affairs, and all Regional Councils

1. In association with industry, Regional Councils, tangata whenua and other community partners, to expand education and communication programmes about possum impacts and risks, and the practicalities of possum control.
2. To develop, fund and facilitate:
   • Mechanisms for ongoing fora to facilitate exchanges of information and views between community groups, tangata whenua, researchers, possum control agencies and Local and Central Government agencies.
   • An independent information provider to be a trusted source of information about possum control and new control technologies.