Disruptive data: How access and benefit-sharing discourses structured ideas and decisions during the Convention on Biological Diversity negotiations over digital sequence information from 2016 to 2022

Abstract

In 2016, negotiations of the Convention on Biological Diversity on access and benefit-sharing policies were shaken up by the emergence of digital sequence information (DSI) as policy issue. Open access to DSI on genetic resources in genetic databases is standard practice in data-driven biological research, but such access was argued to bypass access and benefit-sharing policies of the Convention. As Parties and observers had to take a position on governing DSI, this research investigated the influence of discourses on the negotiations through argumentative discourse analysis. Actors in international environmental negotiations mobilize ‘background’ discourses – both consciously and unconsciously – to define and ‘foreground’ issues, which in turn shape negotiation and decision-making processes. The analysis shows that existing discourses on access and benefit-sharing and biodiversity structured actors’ statements aimed at defining DSI, thus applying and redefining access and benefit-sharing principles in the context of DSI. Actors with similar and slightly varying interests formed discourse-coalitions on the basis of shared storylines. Developing countries formed a separate discourse-coalition to push for DSI regulation wherein ideas about sustainable development and environmental justice were integrated, and to a lesser extent about biopiracy (the notion that open access to DSI enables the misappropriation of genetic resources and associated traditional knowledge). In response, developed countries adopted narratives put forward by industry and research, advocating that open access to DSI is essential for science, biodiversity conservation and sustainable development. A third coalition, consisting of Indigenous peoples and local communities and civil society, also mobilized environmental justice and biopiracy discourses, but more prominently a unique holistic discourse on nature. Finally, holistic and biopiracy discourses were marginalized in official negotiation documents, while scientific and sustainable development discourses were adopted in official negotiation documents. The research provides a novel understanding of the DSI-negotiations as discursive politics, and highlights how different positionalities in discourses structure and are structured by statements in this political arena.