A Case of ‘Muddling Through’? The Politics of Renewing Glyphosate Authorization in the European Union

The politics of glyphosate regulation: lessons from Sri Lanka's short-lived ban

BACKGROUND

Glyphosate is the world's most used herbicide and a central component of modern industrial agriculture. It has also been linked to a variety of negative health and environmental effects. For instance, the International Agency for Research on Cancer classified glyphosate as "probably carcinogenic to humans" in 2015. This has motivated widespread political demands for stricter glyphosate regulation but so far few governments have followed through.

METHODS

We conduct a case study of Sri Lanka, which in 2015 became the first and so far only country in the world to adopt and implement a complete glyphosate ban. But this ban proved to be short-lived, as it was partially reversed in 2018 (and later fully revoked in 2022). To explain the political causes of Sri Lanka's pioneering glyphosate ban and its subsequent reversal, we employ process tracing methods drawing on publicly available documents. Our analysis is theoretically guided by the multiple streams framework and the concept of self-undermining policy feedback.

RESULTS

Glyphosate regulation rose to the top of the Sri Lankan political agenda in 2014 when a local scientist linked glyphosate exposure to an epidemic of Chronic Kidney Disease of Unknown Origin (CKDu). A glyphosate ban was eventually adopted in June 2015 by the newly elected government of Maithripala Sirisena. The ban was a political commitment made to the Buddhist monk Rathana Thero and his party, which had supported Sirisena during his presidential campaign. The ban's partial reversal in 2018, implemented through sectoral exceptions, was the result of continued lobbying by export-oriented plantation industries and increased political concerns about potential negative effects on the large and structurally powerful tea sector. The reversal was further aided by the scientific community's failure to corroborate the hypothesized link between glyphosate and CKDu.

CONCLUSIONS

The case of Sri Lanka suggests that strict glyphosate regulation becomes more likely when coupled with locally salient health risks and when decision-making authority is de-delegated from regulatory agencies back to the political executive. Meanwhile, the short-lived nature of the Sri Lankan ban suggests that strict glyphosate regulation faces political sustainability threats, as the apparent lack of cost-effective alternative herbicides motivates persistent business lobbying for regulatory reversal.

Social Identities in the Policy Process of Authoritarian Systems

The integration of the social-psychological social identity approach to policy process research has recently generated new insights on policy-making. Empirical applications for established democracies and multilevel settings such as the European Union have identified five general types of social identities that are relevant for the preferences and behavior of policy actors and their stability and change over time. Social identities are based on joint memberships in social groups, such as organizations, demographic/biographical identities, sectors, locations, and informal opportunities for exchange (which may result in programmatic groups and identities). Some of these social groups, above all pluralistic interest associations and political parties, are directly related to the settings of embedded democracies. This article sheds light on the traveling capacity of the Social Identities in the Policy Process (SIPP) perspective by applying it to the Russian political system. An analysis of policy actors' social identities in two federal ministries shows that in autocracies, interest intermediation, legitimacy, and influence on policy processes run through professional and informal groups when competing organizations and democratic institutions are absent. The results indicate that the SIPP perspective is adaptable to policy processes in different contexts but that the importance of identity types varies.

Role of land use and land cover in residential exposures to agricultural pesticide models

Exposure of the general population to pesticides, especially in agricultural areas, is a major public health concern. This review analyses the role of Land Use and Land Cover (LULC) in Residential Exposure to Agricultural Pesticides (REAP) and how it is measured and modelled. Some epidemiological studies have shown that basic LULC variables, such as distance to a crop and field size, are relevant for explaining REAP. However, the potential of LULC mitigation elements, such as vegetation barriers, grassy strips and buffer zones, to mitigate REAP has been poorly studied. The availability of recent low-cost and high-quality geospatial data enables REAP models to include alternative and more precise LULC variables. This review also highlights the need for (i) generic environmental sampling protocols, (ii) exposure and spraying datasets and (iii) assessment of the mitigation capacity of LULC to improve REAP modelling significantly.

Public contestation over agricultural pollution: a discourse network analysis on narrative strategies in the policy process

The overuse of fertilizers in agriculture and their entry into freshwater has many negative impacts on biodiversity and poses problems for drinking water resources in Germany. In response to exceeding levels of nitrate concentrations in groundwater in parts of the country, an intense public dispute evolved and a significant policy change in fertilizer regulation occurred in 2020. Based on the German case of agricultural water pollution, this study demonstrates in an innovative way how discourse network analysis is a fruitful method for the integrated study of actor coalitions and their use of narrative strategies in public debate. Theoretically, the study draws on the narrative policy framework (NPF) to explain how actor coalitions use narrative strategies to attempt to influence policymaking on water pollution by agricultural activities. The empirical analysis builds on newspaper articles and press releases disseminated between 2010 and 2020. The results demonstrate how two opposing actor coalitions with congruent policy beliefs formed in the struggle over fertilizer regulation. These not only diverged in their policy beliefs but also differed in their use of narrative strategies to try to expand or contain the policy issue. More precisely, the coalitions adapted their narratives over time in response to changes in the likelihood to win or lose. Furthermore, the results suggest the coalition in favor of stricter fertilizer regulation was more sophisticated in its effort to mobilize specific target groups. Overall, the article provides a valuable contribution to the literature on the NPF by combining research on coalition formation and policy narratives.

SUPPLEMENTARY INFORMATION

The online version contains supplementary material available at 10.1007/s11077-021-09439-x.

Glyphosate in Portuguese Adults - A Pilot Study

BACKGROUND

Glyphosate is a broad-spectrum biocide and the active ingredient in the most widely used herbicides worldwide. Since 2015, when the International Agency for Research on Cancer classified it as a Class 2A carcinogen, global interest in this chemical spiked particularly as regards exposure of the general population.

OBJECTIVE

An exploratory glyphosate exposure assessment was conducted among Portuguese adults.

METHODS

Self-selected participants provided first morning urine which was tested for glyphosate and its metabolite aminomethylphosphonic acid (AMPA) at two distinct periods of time, by two different laboratories using gas chromatography with tandem mass spectrometry (GC-MS-MS) and high performance liquid chromatography linked to triple quadrupole mass spectrometry (HPLC-MS/MS), respectively.

RESULTS

In the first round of testing 28% and 50% presented detectable levels of glyphosate and AMPA respectively, with median values of 0.25 and 0.16 μg/L. Systematically available internal dose values were 8.20E-06 mg/Kg (glyphosate) and 5.04-05 mg/Kg (AMPA). In the second round 73% and 97% presented detectable levels of glyphosate and AMPA respectively with median values of 0.13 and 0.10 μg/L. Systematically available internal dose values were 4.00E-06 mg/Kg (glyphosate) and 3.00E-06 mg/Kg (AMPA).

CONCLUSIONS

Glyphosate exposure was detected among Portuguese adults, with percentages of glyphosate and AMPA contaminated urine in both rounds of testing and above values from previous studies in other European countries. Systematically available internal doses values were below EFSA's risk assessment values (ADI or AOEL), and as such, the concentration values measured in this study are not per se a human health problem. Even though there were study limitations, it is the first assessment in Portugal and contributes to the overall knowledge map of glyphosate exposure in Europe.

Human Biomonitoring of Glyphosate Exposures: State-of-the-Art and Future Research Challenges

Glyphosate continues to attract controversial debate following the International Agency for Research on Cancer carcinogenicity classification in 2015. Despite its ubiquitous presence in our environment, there remains a dearth of data on human exposure to both glyphosate and its main biodegradation product aminomethylphosphonic (AMPA). Herein, we reviewed and compared results from 21 studies that use human biomonitoring (HBM) to measure urinary glyphosate and AMPA. Elucidation of the level and range of exposure was complicated by differences in sampling strategy, analytical methods, and data presentation. Exposure data is required to enable a more robust regulatory risk assessment, and these studies included higher occupational exposures, environmental exposures, and vulnerable groups such as children. There was also considerable uncertainty regarding the absorption and excretion pattern of glyphosate and AMPA in humans. This information is required to back-calculate exposure doses from urinary levels and thus, compared with health-based guidance values. Back-calculations based on animal-derived excretion rates suggested that there were no health concerns in relation to glyphosate exposure (when compared with EFSA acceptable daily intake (ADI)). However, recent human metabolism data has reported as low as a 1% urinary excretion rate of glyphosate. Human exposures extrapolated from urinary glyphosate concentrations found that upper-bound levels may be much closer to the ADI than previously reported.

Examining German Media Coverage of the Re-Evaluation of Glyphosate

This study investigates media coverage of the re-evaluation process of glyphosate from 1 January 2015 to 31 March 2018. In a comparative, qualitative print media analysis, the promotion of claims and the use of narratives of Die Zeit, a weekly newspaper, and top agrar, an agricultural trade journal, are explored. Results identify noticeable differences in both media outlets’ news reporting. Whereas Die Zeit focused on potential health risks and the scientific controversy, top agrar’s coverage emphasized the harmlessness of glyphosate. The multifaceted use of narratives by Die Zeit contrasts with the comparatively low use of narratives by top agrar.