Round-up of pesticide regulation in Asia

For more than a decade the International Organisation for Biological Control (IOBC) Working Group on Pesticides and Beneficials has been measuring the harmful effects of pesticides on natural enemies in Europe. Their experience formed the basis of a recent training course on pesticide effects (see Pesticides News 28) co-organised with the International Institute of Biological Control (IIBC) for the Asia region. During the course participants reported on the current situation of pesticide regulation in their countries.

As part of its IPM programme, IIBC is keen to encourage natural enemy testing in tropical crops where excessive use of pesticides may wipe out beneficial insects and lead to pest resurgence. The long-term aim is to bring testing on natural enemies into pesticide registration procedures so participants were invited from registration authorities and plant protection agencies.
    Registration—which involves submission of data on efficacy, phytotoxicity, toxicity, environmental behaviour and other product chemistry—is, of course, essential. But the ability to implement legislation and regulate hazardous pesticides takes longer. The recent survey by the UN FAO (see PN28), reported that although most developing countries now have a registration scheme, health and environmental problems have not been reduced.

China  
Use and production
China is a major pesticide user, as well as a producer, with an annual output of 220,000 tonnes of active ingredients.

Registration features
All pesticides used must be registered under the Regulations for Pesticide Registration, with data submitted to the Registration Division and Bioassay Division of ICAMA. Approximately 300 pesticide active ingredients are registered.
    Any change in formulation, active ingredient concentration or scope of application requires supplementary registration. Registration involves three stages: field test, temporary registration and permanent registration. Field tests should be carried out in at least two different agricultural production sites for two years, and indicate summary data on product chemistry, toxicity and efficacy. Pesticide Field Trial Guidelines draw on the European Plant Protection Organisation (EPPO)/FAO Asia and Pacific Region regulations taking into account the specific conditions in China. Temporary registration requires submission of detailed chemical data as well as registration status in other countries, label and use restrictions. Permanent registration is obtained only after completion of field trials for efficacy and residues, and requires a complete set of toxicological data.

Personnel and responsibilities
Most testing is carried out by experts and technicians at research, technology or educational institutes, and 250 qualified agricultural staff conduct pesticide trials for the Bioassay Division.

Promotion of IPM and beneficial insects
There is little testing of the effects on beneficials, with the exception of certain pesticides, or under specific conditions.

Indonesia
Registration features
All pesticides are prohibited, unless they meet the registration requirements. The Ministry of Agriculture is the registration body, assisted by the inter-departmental Pesticides Committee. The Pesticide Control Committee, established in 1985, oversees observance of the regulations. The worst violations can carry a maximum of five years in prison and US$125,000 fine.
    Field and laboratory testing must be carried out by an accredited institution approved by the Pesticides Committee, which also sets protocols for efficacy testing. The Directorate of Food Crop Protection or the National Atomic Agency Laboratory check physical-chemical properties before efficacy field tests of certain pesticides.  
    Registration is rejected for substances which are either chronically (carcinogen, teratogen, mutagen, etc.) or acutely toxic, including WHO Class Ia or Ib, although there is provision for a restricted permit for essential use, and such pesticides cannot be sold directly to the general public. To safeguard the environment, they must not be toxic in water. It is intended to phase out persistent and bioaccumulative pesticides, particularly organochlorines. Ozone depleting substances will be phased out by 1997. There are 57 formulations banned for use on rice to prevent insect resistance and resurgence. A further 22 active ingredients have been banned, and in 1995, about 146 formulations are being phased out. All registered pesticides are being reviewed.
    In the absence of national residues standards, the FAO/WHO MRLs are being adopted.

Korean Republic  
The Rural Development Administration (RDA), the central agricultural institution in the Ministry of Agriculture, Fisheries and Forestry (MAFF), is responsible for all crop and livestock research and extension activities at a national level.

Legislation and registration  
All pesticides for plant protection are regulated under the Pesticide Management law of 1957. A further law, Poisonous and Deleterious Substances Management, promotes rational use of pesticides and is enforced by the Ministry of Health and Welfare.
    The RDA is responsible for pesticide regulation and control. Registration data are submitted to the National Agricultural Science and Technical Institute through the Agrochemicals Industry Association. Except for chronic toxicity and residues, data must be generated in domestic conditions.
    Any formulator can register an approved pesticide on production of the manufacturer's technical certificate. Formulators are responsible for their own quality control, although an inspection office collects samples at irregular intervals and pesticides which do not meet specifications should be recalled.
    Extremely toxic pesticides are distributed through specific agencies (e.g. forestry) and restricted for use within a limited area, e.g. Aldicarb G is only allowed for use in forests and aluminium phosphide only on stored grain. Most highly toxic pesticides are prohibited for use in paddy rice.

Training  
Educational programme and material on safe use is distributed through the agricultural extension offices. The media is employed during the farming season. The material includes guidelines to aid selection of the most effective pesticides, handling and safe use standards, recommendations for tank mixing, and poison antidotes. There are training courses for pesticides dealers.

Concerns
Discarded pesticide bottles, plastic bags and other containers are a serious concern, although a container reclamation service exists. MAFF requests the formulators to use polyethylene terephalate (PET) bottles which are combustible after use.

Natural enemy screening  and improvements  
There is no requirement to test pesticides for their effects on non-target arthropods. However work is underway to determine the impact of specific pesticides on natural enemies, including evaluations of the toxicity of a rice pesticide on two rice field spiders.
    The RDA, in co-operation with UNDP and the FAO Inter-Country IPM programme, has initiated a training programme to provide new management skills to farmers and extension workers. The programme includes information and education about pesticide impacts on health, non-target organisms, and pest management. Crops covered include rice, apples, greenhouse and field vegetables.
    In 1995 the Ministry of Environment introduced a system of environmental impact rating for herbicides for display on the label. More regulations are expected to follow as environmental impact reduction is a key policy of the government.

Laos
Chemical pesticide use in agriculture is mostly confined to irrigated rice, but is increasing in vegetable cultivation near larger provincial towns. The low level of pesticide use reflects the low incomes—and therefore low purchasing power of smallholder producers; their lack of availability throughout most of the country; and active government discouragement of use. Existing use is largely confined to insecticides. Fungicides and herbicides are rarely used and not generally available through commercial outlets. This low level of use is regarded as responsible for the wide range and high population levels of natural insect pest predators. Use of botanical pesticides is encouraged and small quantities are produced locally.

Regulation
The Pesticides Act to control the import, manufacture and/or repacking of pesticides is yet to be implemented.  Almost all chemical pesticides are imported. The Department of Agriculture and Extension is the authority for approving import. Pesticides are provided as ‘development aid’, with Japan being a major supplier. In 1991-92 approximately 103 tons of pesticides were imported, of which about 40 tons came from Japan.
    Pesticides restricted or banned in many countries do find their way onto markets. Some pesticides sold in markets of provincial towns, notably methyl parathion, are from unknown sources. The relatively open borders with Thailand, Vietnam and China mean that not all pesticides sold are approved imports.

Registration  
Laos does not have procedures for pesticide registration. However in 1994 the Ministry of Agriculture and Forestry approved a pesticide regulation to control imports of pesticides known to be harmful to humans and animals, pesticides capable of causing environmental pollution, and to prevent the import of low quality pesticides and pesticides banned in other countries.

IPM research
IPM on rice is supported by International Rice Research Institute through a project which began in 1991. An IPM research and extension network was developed in the three rice environments (wet lowland, irrigated and wet upland), to identify and establish the significance of insect pests. In 1993, a survey of 191 farmers in wet lowland rice found that drought was seen as the most important constraint on rice production, followed by pest damage (insects, crabs/snails). Another survey of 138 farmers in central and southern Laos found 28% used pesticides during the 1993 wet season—most only one application.  Few farmers knew the beneficial arthropods naturally occurring in their rice fields, although they were aware of insects and animals that do not feed on rice. Most farmers believed pesticide applications would improve rice yields, but could not  afford them. This highlights the danger of future increased pesticide use associated with any increase in farm incomes and increased pesticide availability, particularly as most farmers were unaware of potential health and environment hazards associated with pesticide use.
    The main obstacles to IPM in Laos are insufficient data on appropriate IPM control strategies for the pests, (although research should fill this void within two years) lack of a developed national extension service which could provide the basis for the extension of IPM technology to farmers and lack of farmer training in IPM concepts. Limited cash incomes of farmers will limit the adoption of those IPM technologies which require a financial outlay.

Myanmar (formerly Burma)
Use of pesticides  
Pest infestation in Myanmar is very low compared with countries in the region. Annual consumption of pesticides is about 350-450 tonnes: about 432 tonnes were imported in 1993-94. All chemical pesticides are imported as finished products, although one plant near Rangoon set up with assistance from the United Nations Industrial Development Organisation formulates cypermethrin, diazinon, endosulfan, fenitrothion and phenthoate. Approximately 77% of pesticides (90% of insecticides) are used on rice, groundnuts, cotton and vegetables. Fungicides are mostly used on oil seeds, cereals, sugarcane, horticultural crops and legumes. Pesticides are subsidised to farmers.
    A factory in upper Myanmar processes neem seed extract, and has an annual production capacity of approximately 25,000 litres. The products are welcomed by farmers, particularly vegetable growers.

Regulatory procedures
The Pesticide Law was passed in 1990 and procedures were added in 1991. A registration system follows standard procedures laid down by the FAO and WHO. The Pesticide Registration Board was formed in 1992.  Based in the Ministry of Agriculture, the Myanmar Agriculture Services tests pesticides for efficacy and directs pesticide importers to ensure the content conforms with the label.  Bio-efficacy and efficacy trials must be carried out. All those wishing to import a registered pesticide must obtain a permit, and dealers are licensed. Before the market oriented economic reforms, pesticides were imported only by government agencies. The Plant Protection Section of the agricultural service has 14 teams which work with extension staff in every state.
    The most commonly used pesticides are diazinon, EPN, phenthoate, fenitrothion, phosphamidon, monocrotophos, carbaryl, deltamethrin, cypermethrin and cartap hydrochloride. Others include aldrin, malathion, padan (cartap hydrochloride), carbofuran.  
    Restrictions are in place on methyl bromide, phosphine, bromidialone, zinc phosphide, brodifacoum, fenthion and DDT, and aldrin will be banned when existing stocks are exhausted.

Biological controls
There is an abundance of natural enemies in farm lands, and neem products are used.

The Plant Protection Section encourages IPM on selected crops—mainly pest surveillance and scouting systems.

Pakistan  
Import and Consumption
Despite annual pesticide use of billions of rupees, one estimate suggests that only 30% of crops are sprayed. Consumption of pesticides increased from 3,677 million tonnes in 1981 to 20,279 million tonnes in 1993, coinciding with transfer of trade to the private sector.
    All pesticides are imported as either technical grade or ready formulated products. Insecticides have the major market share. Organophosphates account for about 60% of total use. Over 70% of pesticides are used for cotton and the rest mainly on rice, sugarcane, fruit and vegetables. At present about 400 products comprising over 200 active ingredients are registered. Pesticide dealers are required to be registered and trained in safe use of pesticides.

Pesticides Registration
Import, manufacture, formulation, distribution, safe use and advertisement of pesticides are regulated under the Agricultural Pesticides Ordinance, 1971 and Agricultural Pesticides Rules, 1973, which are based on the 1982 FAO guidelines. Applications for registration must be submitted to the Department of Plant Protection, Ministry of Food and Agriculture. Samples are tested by agricultural research institutions in each ecological zone.
    Government institutions test for efficacy over two seasons.  The test protocols used for bio-efficacy are consistent with those recommended at a regional workshop on harmonisation held in Malaysia in 1988. However, commodity products which have been registered in their country of manufacture are considered for registration under a generic scheme, and are not required to undergo two season trials. There is no evaluation of pesticides effect on natural enemies.

Bans
Pakistan has banned the import of  21 pesticides, and more are under consideration.

Thailand  
Pesticides are regulated by the Hazardous Substances Act of 1992—an improvement in the pesticide control system. However the ministerial rules and notifications are still being drafted. Phased registration as recommended by FAO was introduced in 1991. This involves three steps. Before the product is marketed, full registration is required which includes test results of bioefficacy and complete toxicological data with two-years feeding studies.

Registration features
Registration was first established in 1973, but since adopting the FAO Code and the new registration scheme, improvements have included: control of all pesticides and plant growth regulators; standard FAO data requirements; WHO recommended pesticide classification by hazard was adopted; the colour band and pictograms on labels; better analytical specifications to ensure quality control. Nevertheless, standards need to be further raised to meet international requirements.

Philippines  
Registration  
The government Food Production Programme based on high input agriculture prompted the creation of the Fertilizer and Pesticide Authority (FPA) in 1977. The FPA is the designated national authority for registration matters, and for the PIC procedure.
    FPA licences pesticide distributors and dealers and issues a certificate authorising import. Registration may be suspended or cancelled when there is imminent danger of use or misuse of the products or violations of regulations by handlers.
    Education, training and certification of pesticide handlers and agro-medical officers are also significant activities of the FPA. The Pesticide Management Council is developing training for agriculturalists to help the FPA’s Certification Programme. Registration of some new and toxic pesticides will be evaluated for risk/benefits by consultants.
    Field monitoring and implementation of FPA rules and regulations are carried out by regional and provincial officers.

Developments
Crop protection in the Philippines is changing significantly, with heightened concern on public health and the environment, now reflected in policy and actions. The registration now requires more scientific data on new pesticides. Recent upgrading of the Pesticidal Analytical Laboratories means better monitoring of  pesticide tolerances, established in line with the CODEX Alimentarius.

Bans and restrictions
No new registrations of pesticides in WHO class I are allowed, and those previously registered are being reviewed. Recently the authority banned methyl parathion and azinphos-ethyl.
    Pesticides which endanger the aquatic ecosystem and rice production are causing concern. Organotin compounds and endosulfan formulations have been severely restricted from use in lowland rice or near bodies of water. Monocrotophos is restricted for use on bean fly control only.
    Certain pesticides may be sold only by certified agrochemical advisers employed by agricultural input distributors and dealers.

Alternatives
Bioefficacy testing of pesticides includes effects on beneficial organisms.

Vietnam  
Pesticides use
Pesticides have been widely used in Vietnam for 30 years. About 127 pesticide active ingredients are used, including 54 insecticides, 36 fungicides, 32 herbicides, two rodenticides and three plant growth regulators. In 1994 319 pesticide products were permitted for use. Of these 174 were insecticides and 56 herbicides.
    Between 1990-93, the quantity of pesticides imported dropped and the use of some pesticides has been restricted. In 1991, 12,800 tons were imported (value US$22.5 million) which declined to about 10,000 tons (value US$15 million) in 1993. By weight, insecticides represent 54% of the market, fungicides 31% and herbicides 7%.
    Farmers have begun to see the side-effects of pesticides, including resistance in diamond back moth and brown plant hopper (BPH). In 1978-79, large scale BPH  outbreaks occurred on about one million ha of rice, with major crop losses. Normally 2-3 chemical treatments are applied in a season.

Registration
In July 1991, the Vietnamese government set up a pesticide registration committee.

Research into beneficial organisms
Research on beneficial organisms has been carried out since 1975, concentrating on rice and other main crops, although many beneficials have not yet been investigated. Surveys have recorded 2,962 species of insects and 728 diseases on crops, and surveys of natural enemies identified 209 species on rice, 93 species in cotton and 89 in soy bean. These include 117 parasitoids, 87 predators and 5 diseases.
    Natural enemies are used in two main ways, by mass rearing and releasing some species into the relevant crop and by protecting and maintaining natural enemies in the crop.
    Natural enemies were first used in Vietnam agriculture in 1980 to control rice pests. Trichogramma spp. are effective against rice leaf folder and yellow stem borer. Certain useful insects and fungi have been identified which parasitise brown plant hopper and jute semi looper. Bacillus thuringiensis  is successfully used for control of diamond back moth and rice leaf folder;  Nuclear Polyhedrosis Virus controls cotton bollworm and jute semi looper; and Trichoderma  controls sheaf blight in maize.