1.1 The Global Need for Conservation of Plant Genetic Resources
1.2 Future Challenges and Issues
1.3 Protecting Global Genetic Resources: A Framework
1.4 Responses to the Recommendations of the 1991 IBPGR and 1992 INIBAP External Reviews
The need for conservation of plant genetic resources (PGR) hardly requires justification after UNCED (Rio de Janeiro, 1992), the adoption of Agenda 21, the coming into force of the Convention on Biological Diversity (CBD; December 1993) and the 1996 FAO International Technical Conference on PGR in Leipzig. The report presented to the Leipzig Conference on The State of the World's Plant Genetic Resources, based on 151 individual country reports, is evidence of the global concern that the continued existence of genetic diversity of plants and animals is vital for world food production - but is by no means secure.
The Global Plan of Action for the Conservation and Sustainable Utilization of Plant Genetic Resources for Food and Agriculture (GPA) adopted by the Leipzig Conference represents an agreed framework for action. The GPA's main aims are:
· To ensure the conservation of PGR for food and agriculture as a basis for food security;· To promote improved utilization of PGR, in order to foster development and to reduce hunger and poverty, particularly in developing countries;
· To promote, within and among countries, and with farmers and communities, the fair and equitable sharing of the benefits arising from the use of PGR for food and agriculture or from the use of knowledge, practices, or innovations associated with such resources; and
· To assist countries and institutions responsible for conserving and using PGR to identify priorities for action.
The Leipzig Conference succeeded in placing PGR firmly on the international agenda and clarified the position of PGR within the total context of biodiversity as addressed by the CBD (see Box 1.1). However, it must be recognised that the GPA does not extend to the extremely important genetic resources of farm animals, aquatic species, forest products, or microbial species. While the principles for global management of those genetic resources are similar to those for plants, there are many important differences that must be addressed in future fora.
Nevertheless, following the adoption of the GPA, there is widespread acceptance of the urgency to revitalize the global effort in the important area of PGR conservation. IPGRI, together with the other Centres of the CGIAR, represents the world's largest international effort in conservation and utilization of genetic diversity in crops. IPGRI itself has a major responsibility to help the international effort as well as to provide a sharper focus to genetic resources conservation, access and utilization efforts of the CGIAR, at national and international levels.
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Box 1.1: Convention on Biological Diversity The Convention on Biological Diversity (CBD), adopted at UNCED in 1992 has, as of January 1997, been ratified by 168 countries. It is an international, legally binding instrument governing the conservation and sustainable use of biodiversity, including genetic resources for food and agriculture. The CBD has three objectives: · to promote the conservation of biodiversity The CBD recognizes the sovereign rights of nations to control access to the biodiversity within their territories. Only countries can legally adhere to the CBD and thus the CGIAR, while recognizing the importance of the Convention and agreeing to be guided by it, cannot formally be party to it. The Parties to the CBD have endorsed the role of FAO in addressing some of the outstanding issues remaining at the time of the Convention's adoption: the status of pre-CBD ex situ collections, the implementation of farmers' rights, and terms and conditions for accessing genetic resources. These are all currently under negotiation within the FAO Commission on Genetic Resources for Food and Agriculture (CGRFA). The revised International Undertaking on Plant Genetic Resources, expected to result from these negotiations, may be adopted as a protocol to the CBD. The CBD provides the primary international legal framework within which IPGRI operates. IPGRI serves as the focal institution within the CGIAR for interacting with the CBD and, since leading the CGIAR delegation to UNCED, has participated in all the meetings of the Parties to the Convention and its Subsidiary Body on Scientific, Technical and Technological Advice (SBSTTA). IPGRI also coordinates the CGIAR's input to other meetings organized by the CBD Secretariat, e.g. on biosafety. In addition IPGRI is actively working with FAO to provide scientific and technical advice pertinent to the re-negotiation of the International undertaking. |
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Box 1.2: IPGRI's Mandate, Mission and Objectives As given in IPGRI's long-term strategy document, "Diversity for Development", published in 1993: · IPGRI's mandate is to advance the conservation and use of plant genetic resources for the benefit of present and future generations. · IPGRI's mission is to encourage, support and engage in activities to strengthen the conservation and use of plant genetic resources worldwide, with special emphasis on the needs of developing countries. IPGRI works in partnership with other organizations and undertakes research and training, and provides scientific and technical advice and information. · IPGRI has four objectives: 1) to assist countries, particularly developing nations, to assess and meet their needs for plant genetic resources conservation and to strengthen links to users; 2) to strengthen and contribute to international collaboration in the conservation and use of plant genetic resources; 3) to develop and promote improved strategies and technologies for plant genetic resources conservation; 4) to provide an information service on plant genetic resources. IPGRI's mandate, mission and objectives have not changed since their publication 4 years ago. However, with the inclusion of INIBAP and other new programme elements, a greater emphasis is now being given to the genetic resources of specific genepools which are of priority to the achievements of CGIAR goals and in ways that complement the responsibilities of other CGIAR Centres. |
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Box 1.3: The Global Plan of Action for Food and Agriculture (GPA) and IPGRI The GPA, adopted by 150 governments at the International Technical Conference in Leipzig, June 1996, is of critical importance for IPGRI and forms a basis for the institute's new Medium Term Plan (1998-2000). The 20 inter-related activities of the GPA are presented in four chapters (see Appendix VI). Some examples of IPGRI's current activities which contribute to each of these four areas are presented below: 1. In situ conservation and development · ecogeographic surveys and development of tools for genetic diversity assessment 2. Ex situ conservation · development of international standards and guidelines for genebank management 3. Utilization · development of descriptors to promote and help standardize characterization 4. Institutions and capacity building · support for the development of effective national programmes · promotion of regional and species networks to link institutions in international efforts to advance rational conservation and active use · provision of tailored information to PGR workers and policy-makers to permit informed decisions · research on national and international policy options for PGR conservation and use · human resources development through providing training materials, assisting in curriculum development, and offering targeted training courses · raising awareness among policy-makers and those who influence them. |
The GPA identified 20 priority activities that require attention by national and international programmes (see Appendix VI). It is clear that IPGRI's current mandate, mission and objectives (Box 1.2) are highly compatible with the aims of the GPA; and that the four major programme areas of the GPA fit well with IPGRI's four institutional objectives and various activities (see Box 1.3). These objectives and IPGRI's current scope of work have gradually evolved since its inception as IBPGR in 1974 (see Box 1.4).
At the outset, the Panel determined that in view of the global need for conservation of PGR noted above, IPGRI's mandate and mission are wholly appropriate for helping lead the global effort in genetic resources conservation and utilization in the years ahead. Therefore, the Panel adopted a forward-looking strategic approach, and examined IPGRI's current activities and future plans in order to assess how well the Institute is prepared to accept the challenge of helping translate the GPA into action.
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Box 1.4: IPGRI's Origin and Evolution · The International Board for Plant Genetic Resources (IBPGR) was established in June 1974 with support, and under the legal and administrative umbrella, of FAO. During the first ten years, IBPGR concentrated on collecting threatened crop genetic resources (including species in the mandates of other CGIAR Centres), setting up genebanks (including a number at the CGIAR Centres), developing standards (descriptors, etc.), providing training and supporting seed conservation research. · From 1985 IBPGR gave increased attention to contract research and reduced its technical assistance to genebanks, while maintaining activities on collecting, developing standards and training. IBPGR worked increasingly in direct partnership with national programmes. · In 1990/1991 memoranda of agreement were signed by IBPGR and FAO concerning programme collaboration between the two organizations and on administrative separation. · IPGRI, the legal successor to IBPGR, was formally established on 9 October 1991, and became operational in January 1994 when the Italian Parliament ratified IPGRI's Headquarters Agreement with the Italian Republic. As a result, IPGRI formally separated administratively from FAO to operate under its own management and administrative systems. · In 1994, at the request of the CGIAR, IPGRI took over the governance and administration of the International Network for the Improvement of Banana and Plantain (INIBAP). · Also in 1994, the CGIAR established the System-wide Genetic Resources Programme (SGRP) with IPGRI as Convening Centre. · In 1995, TAC and the CGIAR agreed to an expansion of IPGRI's Research Agenda into the areas of ethnobotany, forest genetic resources, and in situ conservation. |
The main challenges, as viewed from IPGRI's particular vantage point, span a wide variety of issues in the conservation and utilization of PGR. To help focus its task, therefore, the Panel identified the following key issues that, in its view, confront the Institute at present:
· The political environment in which IPGRI has to operate has become far more complex since the last EPMR in 1991. At the same time, public awareness of the importance of genetic diversity conservation has increased, and has provided new opportunities and sources of funding. The issue therefore is how to remain responsive to new demands and opportunities without deviating significantly from the primary mission and objectives of the Institute (see Chapters 3, 4 and 10).· IPGRI is basically a science or research-based service organization to national programmes and the PGR conservation community in general. This requires essentially a needs-driven approach, hence close involvement with a variety of actual or potential partners (farmers, NGOs, conservationists, national and international organizations, and policy-makers) in setting objectives and in programme formulation. However, at the same time it must use its own judgement as a leading institute in the field (see Chapters 6, 8 and 10).
· Choices have been made of what are the major problem areas in conservation and in which IPGRI has a clear comparative advantage. Partners are identified, networks established, and projects contracted. The challenge is to maintain in such a situation a focused and balanced programme guided by strategic considerations and clear objectives and criteria. This is not easy in an institute that is expanding rapidly, while available funding sometimes follows trends rather than responding to IPGRI's strategies and needs (see Chapters 2, 3, 4, 7 and 8).
· Conservation strategies are broadening, from a previous emphasis on ex situ conservation to a range of in situ strategies, both natural and on-farm. New crops and groups of crops have been added, notably forestry, requiring new approaches and introducing new partners. There is a need to know what genetic diversity exists (surveys), the danger of loss (monitoring) and the most appropriate way of sampling and conservation. For example, how does IPGRI deal with a crop like coconut and the coconut user community (see Chapters 3 and 4)?
· IPGRI has gone through a phase of rapid expansion of funding and staff and reorientation of its organization. The Institute's regional structure has been consolidated into five offices to further strengthen relationships with national and regional conservation activities and to increase the effectiveness of its support to national programmes. At the same time, thematic research programmes have expanded to address major issues in genetic conservation and to provide technical support to the regional offices. The balance and mode of cooperation between the various groups and programmes (regional and thematic) determine the effectiveness of the new organizational structure, and need to be examined (see Chapters 3, 4, 8 and 9).
· IPGRI has provided since 1994 the operational home for the International Network for the Improvement of Banana and Plantain (INIBAP) and that has, to some extent, changed the structure of the Institute. The impact of INIBAP on IPGRI and vice versa needs to be evaluated, particularly in light of the intended full integration of INIBAP with IPGRI (see Chapter 5).
· The CGIAR System-wide Genetic Resources Programme (SGRP) was formed in 1994 with programme leadership assigned to the Director General of IPGRI. The progress of this leadership effort, which extends beyond plant genetic resources, needs to be evaluated (Chapter 6).
The Panel was faced with these and other issues. It has attempted to address them comprehensively, constructively, and fairly in the chapters that follow. In making its assessments, the Panel was guided by the following Framework for conservation and utilization of genetic resources.
Hand in hand with the concept of protecting global genetic resources is the requirement that these resources are available to be used in various ways, but remain accessible indefinitely. Biological conservation thus acknowledges utilization and is a process by which the resources remain accessible. Lack of protection of biological resources may lead to the loss of biodiversity at the species, individual, and more importantly, gene (alleles) levels. This genetic erosion is of great concern to users and observers of genetic diversity. Biological resources have the remarkable property of being renewable, but the proper conditions must be sustained if reproduction is to occur. Human activities, invasions by exotic species, global climate change and local natural catastrophes such as fire and disease are principal causes for changes in the ability of species to reproduce and thrive within their environments.
Protection of global genetic resources can be shown in a simple framework, which encompasses the main mission of IPGRI. This framework applies to all living organisms, but is applied differently for various situations, as for example, for crop plants and their wild progenitors which require different activities included in the framework. The CGIAR has broadened its scope to include farm animals, fisheries, and forest species among the biological resources that are targets for conservation among several Centres, including ICLARM, CIFOR, ICRAF, and ILRI. IPGRI's specific role still concerns plants (including forest species), but with its System-wide role in leadership of the System-wide Genetic Resources Programme, the broader interpretation of genetic resource management comes within IPGRI's purview.
The framework found useful by the Panel encompasses the-following major components:
· Surveying:To learn what genetic resources exist, where they are, how they reproduce, and what are current or future threats to their existence, detailed surveys and inventories must be made. This is a global issue requiring efficient methods of sampling, collection of data, and interpretation of information.
· Monitoring:
Are spatial or temporal changes in the composition of species or crop cultivars occurring? If so, actions must be taken to reverse these trends. If they are not reversible, as for example, if a large lake is created for water conservation, endangered genetic resources must be translocated or collected for safe-keeping.
· Building a conservation strategy:
A strategy must be developed that meets the needs for conservation in cases where interventions are needed, as above, and for making genetic resources accessible for use by farmers and rural communities as well as researchers concerned with plant breeding and basic biology.
· Implementing the conservation strategy:
This requires facilities for ex situ conservation, such as in controlled environments for seeds or tissue-cultured plants or in fields where large numbers of plants from various places may be grown. In special cases, individual genes can be conserved by introducing them into plasmids and storing them at low temperature. Alternatively, areas might be identified to be managed as gene reserves, or special action might be needed to promote the continued on-farm management of locally adapted crop diversity.
· Using conserved genetic resources:
For genetic resources to be used, they must first be observed to identify valuable characteristics. These resources can then be used directly in agriculture or in conventional or molecular plant breeding. This also requires a strategy for evaluation and gene transfer.
Operationally, each of the framework components requires a large knowledge base, appropriate methodologies, trained human resources, and suitable physical facilities. All of this can only be possible in an environment of favourable national and global policies and adequate and secure financing.
IPGRI's role, therefore, is to take account of a daunting set of interacting factors that require mobilization of activities at all levels, from national to village and farm levels, and internationally. Thus, one should expect to find in IPGRI a programme structure that provides conceptual and administrative leadership at its headquarters site in Rome and activities throughout the world to develop local programmes and encourage intercountry cooperation for genetic resource management.
It is the purpose of this Review to examine how IPGRI addresses the protection of genetic diversity on a global and regional basis through its various scientific programmes and outreach strategies. The remainder of this Review report covers the main work of IPGRI and its evaluation by the Panel.
The 1991 IBPGR and the 1992 INIBAP External Reviews made 20 and 12 recommendations respectively. The recommendations were generally endorsed by TAC and the CGIAR. IBPGR/IPGRI's and IPGRI/INIBAP's responses to the recommendations are tabulated in Appendix V, together with this Panel's comments. According to the assessment of the Panel, IPGRI has fully implemented 22 recommendations, and partially implemented 7 recommendations. Three recommendations have not been implemented, of which two are no longer relevant following the merger of IPGRI and INIBAP. The Panel comments on the action taken by the Institute in the appropriate sections of this Report.
