Genetic Technology (Precision Breeding) Bill (First sitting)

(Limited Text - Ministerial Extracts only)

Committee stage
Tuesday 28th June 2022 Public Bill Committees

[The Chair]

We will now hear evidence from David Exwood, vice-president, and Dr Helen Ferrier, chief science and regulatory affairs adviser, both of the National Farmers Union. Thank you for coming this morning. I can see that you are both there—both our witnesses are appearing via Zoom.

Before calling the Minister to ask a question, I remind all Members that questions should be limited to matters within the scope of the Bill. We must also stick to the timings in the programme motion that the Committee has agreed. This session will finish at 10.10 am. With all witnesses, I will first call the Minister and then the shadow Minister, before opening up to questions from others in the Committee.

[The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Jo Churchill)]

Q Good morning, David and Helen, and thank you very much for attending this morning. I will start with a broad question, if I may. What are the views of farmers on precision breeding and how the Bill is likely to impact across both the crop and the livestock sectors? Perhaps we will go to David first.

David Exwood: I think farmers welcome this Bill, because of the possibilities it offers. I am really clear that the big gains, the big changes, in farming are all around breeding. Yes, there are gains in productivity around my machinery, but really the exciting things in the future are all around breeding and the possibilities that brings, and the Bill will help with that.

For all my farming career, I have used pesticides as part of the process. I am very happy about that, but we now genuinely have an opportunity to produce as much food as we do now but with much less impact. So I think farmers welcome the Bill, which opens a world of possibilities and addresses the challenges we face at the moment. There is so much pressure on land use, and the ability to produce the same amount of food as we do now but with less environmental impact and more sustainably is something all farmers welcome.

Dr Ferrier: Ultimately, the market will decide whether this technology is adopted here, but I think that, before that happens, the regulatory system and the legislative process will decide whether farmers and growers have access. The technology is clearly being developed around the world, and regulatory processes are being reviewed and put in place around the world. Farmers and growers are not going to be able to access the products of the technology and realise those benefits that David has talked about if companies are discouraged or regulation is not enabling. So the impact of the Bill depends on how well it is written and whether it will be proportionate and fit for purpose and will therefore encourage the investment of breeding companies that then enables farmers to adopt the products of the technology.

[Jo Churchill]

I have other questions, but I would like this process to be collegiate, so perhaps we should go to others, because they may ask the same questions as I will.

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[The Chair]

Thank you for giving us your time this morning.

[Jo Churchill]

Q Good morning, Professor Henderson. Are you content that this Bill is based on the best available science? Would you like to explain the input you have had into the Bill?

Professor Henderson: Yes, I would. I think I can reassure the Committee on both those questions. I have been involved since the very early stages of the preparation of this Bill in consulting widely with the scientific community, advising Ministers and officials in my Department and others, and talking to stakeholder groups about the science and its implications. The Bill has taken into account the science and the most expert views of it in a very diverse way. I am personally content that it is fit for purpose and will ensure the continued safety of the environment and food.

[Daniel Zeichner]

Q Good morning, professor. It is very good to see you. You will appreciate that one of the big discussions about this Bill is likely to be about definitions. I want to go into some of them, because you will be aware that some of the learned societies—the Royal Society of Biology, for instance—have questioned the very existence of the concept of a precision bred organism. Can a precision bred organism contain exogenous genetic material? If so, can you explain how that is different from a genetically modified organism?

Professor Henderson: There is an interesting question about how far deregulation into genetic technologies ought to go in one step. Some groups of scientists would certainly favour a model in which you relax the regulation much more widely and base all the outcomes on the traits that are produced through that technology—the outcome in the product—rather than having any view about the technology or the process by which the product is made. That is certainly a view that some scientists would hold.

The view of Government—this has played out in a number of stakeholder groups— has been that moving more cautiously to deregulate or lower the regulation of some aspects of genetic technologies first is a cautious and stepwise way to move. That takes account of the science, enables us to be aware of the issues as they arise, and most importantly builds the confidence of the public as those technologies are used more widely in food production. That is the justification for moving first into the use of technologies only to mimic breeding processes through precision breeding, as described in the Bill.

There is a difficulty in describing the limits of what is possible with breeding. It is clear that some things that are possible—we know they are possible because we have done them—are very similar to things that have been done, and they are therefore clearly in scope. There are other examples that are clearly not possible through breeding. In between those, there is something of a grey area. There is now detailed advice from an expert group—the Advisory Committee on Releases to the Environment—that lays out the definition of the circumstances in which something would be considered possible through breeding, and therefore would be considered a precision bred organism, to define the line within that grey area.

You also asked about exogenous material, by which I take it you mean material from another species. That sort of material can occur entirely naturally, and it can occur during breeding processes as well, but in general it does not lead to any functional change or any phenotypic change. The Bill is designed not to allow exogenous material, if it has any functional or phenotypic outcome in the product. In that way, it does mimic the action of traditional breeding. I hope that answers your question.

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[Jo Churchill]

Perhaps we can ask Professor Henderson to dial off and dial back. Let us see if we can retrieve him.

[The Chair]

You are back, Professor Henderson. We move on to the SNP spokesperson, Deidre Brock.

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[Ruth Jones]

I am sorry, Chair; I cannot understand the answer.

[Jo Churchill]

I understand, Gideon, that you are on a visit. May I suggest, with the Committee’s indulgence, that we slot you in on Thursday, if people are agreeable and you have the time? Your evidence is both welcome and vital, and we would like to hear from you.

Professor Henderson: Again, I can only apologise for the bad wi-fi I have here. I would be happy to come back to you at any time that suits the Committee.

[Jo Churchill]

Thank you.

[The Chair]

We have 10 minutes left in this session, so let us have one more try. If that is unsuccessful, then, with my co-Chair, we can consider changing the programme motion. We have agreed a programme motion so it would have to be formally changed. Will you ask the question again, Ruth?

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[The Chair]

We now come to Professor Robin May. We have until 11 am, so we have gained five minutes. Thank you for giving us your time and expertise this morning. Could you briefly introduce yourself?

Professor May: Certainly. I am Robin May, chief scientific adviser at the Food Standards Agency and a professor of infectious disease at the University of Birmingham.

[Jo Churchill]

Q Good morning, Professor May. I will start with a broad question. Why is it necessary to create a new regulatory framework for precision bred food and feed products, and how will the FSA balance safety in doing so?

Professor May: There are probably two answers to why this is necessary. Currently, precision bred foods and feeds will be encapsulated within the existing GM framework. If they are moving out of that framework, it is important to be sure that those products are safe. The key difference here with traditional breeding is one of pace. The entire point of this technology is to do things that could have been achieved through traditional breeding, but much faster. It is important that we have safety checks along that pathway.

On your question about balance, I think the key balance to strike here is between supporting innovation and ensuring safety. At the moment, our thinking around this is to have a two-streamed process for regulation, where there is a very light-touch process for anything where there is unlikely to be a substantive change in the food and more scrutiny of anything where the final food product is different. I think that is quite appropriate for this blend of technology.

[Daniel Zeichner]

Q Good morning and welcome. You may have heard some of the previous discussion around labelling. Indeed, it is something the Food Standards Agency has looked into. Could you tell us what work the Food Standards Agency has done on assessing the public view on labelling and what conclusions you have come to?

Professor May: We have undertaken quite a lot of consumer research in this area, as have many others. There are various take-home messages from that. The first is that there has been a perceptible shift in public views over the last 10 or 20 years, and there has been more interest in the potential benefits of this technology. That is mirrored by a really strong view that the public want some level of regulation and safeguards in this and other genetic technologies.

Specifically around labelling, there is a very strong majority of the public that we have polled, and that others have seen, who would like labelling of these products. There is some difference of views about what that labelling should entail, but there is a strong feeling around it. From an FSA perspective, we would in principle support that, because we stand very strongly for transparency. The problem, sitting here as a scientist, is that this is not really achievable for this particular group of foods, because the entire nature of the precision breeding legislation is to consider things that could have been produced traditionally.

Consequently, you may end up in the future with two apples, for instance, and one was produced by precision breeding that involves gene editing and the other was produced by traditional methods. It would be scientifically impossible—at least, at the moment—to tell those two apart.

Then, from my perspective, my view is that a label that is not enforceable and that might be misleading is actually worse than no label at all, because you then start to spread doubt about the validity of other labels in the food system: allergen labels, nutritional labels. While in principle I think labelling would be a good thing, the fact that we cannot enforce it makes me feel that this is not appropriate for this type of food.

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[Daniel Zeichner]

Q But as far as you understand it, the purpose of the register is to give that public reassurance. It is a public information issue.

Professor May: That is correct, yes.

[Jo Churchill]

Q What learnings have you taken from looking at countries that already have taken this technology forward? I am thinking in particular of Canada, Japan and Argentina—places where we holiday and are very comfortable with eating foods there. What have we learned from looking at other countries across the world, and how have you referenced that learning in the proposal you have put forward?

Professor May: There is a range of approaches across the world. It is probably true to say that no two countries have exactly the same approach at the moment. Perhaps I may give some examples.

At one end of the scale, you would have the current approach in the European Union, where all genetic modification, even genome editing that would fall within precision breeding, is regulated as GM and goes through a full risk assessment, often involving toxicology and quite a lot of analytics. At the other end of the scale, you have the US, for example, which has a default setting: if it is similar to something that was traditionally bred, there is no regulation.

Perhaps in between, the Canadian example is an interesting one. In Canada, they regulate the product and not the technology that has created it. They ask—let us go for an apple—“If you have created this apple, is it different from an apple I can buy currently?” If it is not different, it is not a novel food and it is not regulated; if it is different, it is a novel food and it gets assessed, regardless of how you made it. If I made that apple by precision breeding and it is different, it would be regulated; if I made it by crossing two apples in my orchard and creating a new apple tree that was different, it would still be regulated through that process. Scientifically, that is a very valid approach, but it means that you encompass within it all of traditional breeding and all the things that are done but not regulated in that way in this country.

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[The Chair]

Good morning, Professor Dunwell, and thank you for giving us your time. We will finish this session at 11.25 am. Will you introduce yourself briefly?

Professor Dunwell: I am Jim Dunwell, professor of plant biotechnology at the University of Reading. I am also chair of ACRE, the Advisory Committee on Releases to the Environment, and have been for the past nearly three years.

[Jo Churchill]

Q Welcome, professor, and thank you for coming this morning. One of the challenges is that people hear that this will be swifter, and that concerns them. However, does the increased speed of the precision breeding method make the technologies less safe?

Professor Dunwell: Absolutely not. Some people suggest that speed, when it is applied in this kind of science, somehow has an intrinsic risk attached to it. That is slightly strange, as in most areas of science and innovation we are striving towards efficiency, whether it be in producing better vaccines or better batteries for electric cars. We are in a competitive world, and we can be sure that, as a nation and a scientific group, we are up against people who are having the same discussions elsewhere. If you are a plant breeder—not that it is a particularly profitable business—the ones who are successful are those who make genetic gains more efficiently and more quickly. Ever since we have known how genes control plant development, there have been advances in plant breeding to try to go through generations more quickly, so that people can capture, create and select genetic variation more quickly, and get their products to market more quickly. This is another element in that, which allows further increase in efficiency. Therefore, I have no intrinsic doubt about it.

[Jo Churchill]

Q Have you identified any greater risks involved in precision bred organisms, when compared with traditional organisms?

Professor Dunwell: No, not at all. It is something that ACRE as a group has had discussions about in the past decade, saying that the traditional methods of regulation were not really keeping pace with the change in the scientific information. Some 10 years ago nearly, we produced a report leading the way on that. Some of those issues have now fed through into the present proposal for regulation. Something you do with gene editing is to make slightly different, smaller genetic changes—that is the precision—enabling you to take a good variety and make it slightly better, just by making an existing change. In the past, you would have to put together different hybrid combinations. You would then have to go through massive selections of the best progeny, and that takes time. In terms of breeding a new variety, it may take five, eight or 10 years. That, now, can be cut back substantially.

[Jo Churchill]

Q I hope the Committee will indulge me as I ask my final question. Is this a good time to be bringing this legislation forward, given that you have highlighted to the Committee that we perhaps needed to look at our regulation a decade ago?

Professor Dunwell: I think it is very appropriate. Obviously, it follows on from our removal from the EU. As for the legal case that created this, I suppose, concern, most scientists in the UK and the EU realised that it was a sort of perverse judgment when it comes to traditional so-called mutagenesis, where you apply chemicals or radiation—that is considered a traditional method and has been for 50 years. If you go back to the ’50s, there was a society of atomic gardening. That was when atomic energy was “good”. There was a very popular and interesting character who set up the atomic gardening group. She used to demonstrate her plants at Chelsea; she used to have dinner parties and carry round irradiated peanuts to offer to people. It was considered a good thing, but it was a complete unknown. But there was no evidence of any problems relating to it. We can now make particular small genetic changes in a much more precise way, and I think it is a good time for the UK to take a lead and apply the best scientific principles that we have at our disposal.

[Daniel Zeichner]

Q Welcome and good morning, Professor Dunwell. I am going to try to pursue some of the vexed issues of definition at the start of the Bill, and I will ask you first the question that I asked Professor Henderson earlier. Can a precision bred organism contain exogenous genetic material, and if so, how is it different from a genetically modified organism?

Professor Dunwell: I think this comes back to our understanding of genomes. Some of the wording in here comes out of the discussions that we have had within ACRE and the recognition that, probably 20 or 30 years ago, we assumed that one crop had one genome and that was it, but we now know, because you can sequence genomes very easily and quickly, that in fact there is an enormous underlying diversity of genetic material. The number of genes in one variety of maize or corn is different from the number of genes in another. There are also structural rearrangements. You can have great pieces of chromosomes interchanged or moved; it is still a maize plant. These so-called structural variations are an intrinsic part of plant breeding—and also animal breeding. The more we see the diversity of this variation, the more we pick up the fact that many, many plants have DNA that has come from other organisms throughout their evolution; it is the same with animals. Plants have segments of DNA from, say, virus infections hundreds or thousands of years ago perhaps. They have been incorporated into the genome and so, in old-fashioned definitions of GM, those organisms would be considered genetically modified organisms, because they have material from another organism in them. But we accept now that that is the baseline—that many, many organisms have small parts of DNA from many, many organisms. We have nematodes that have plant DNA. We have insects that have plant DNA. These have been moved around during evolution. They do not change the purity of the species. In evolutionary terms, they create the diversity that enables evolution to take place.

That is the background in which the term “natural transformation” has been created. The simple presence of a small fragment or a bit of DNA from another species, which might have been there anyway, is not something that has any impact on hazard or risk.