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유전자교정 농작물의 실용화 현황 및 전망

박수철1,*, 정영희2, 김경민3, 김주곤4, 고희종5

Gene-Edited Crops: Present Status and their Future

Soo-Chul Park1,*, Young-Hee Joung2, Kyung-Min Kim3, Ju-Kon Kim4, Hee-Jong Koh5
Korean Journal of Breeding Science 2019;51(3):175-183.
Published online: September 1, 2019

서울대학교 그린바이오과학기술연구원/한국국제생명과학회

전남대학교 자연과학대학

경북대학교 농업생명과학대학

서울대학교 그린바이오과학기술연구원/국제농업기술대학원

서울대학교 농업생명과학대학

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*(E-mail: scpark1@snu.ac.kr, Tel: +82-33-339-5836, Fax: +82-33-339-5825)
• Received: July 14, 2019   • Revised: July 19, 2019   • Accepted: July 31, 2019

Copyright: © 2019 by the Korean Society of Breeding Science

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  • Recently, several attempts have been undertaken to develop breeding technologies by combining new biotechnologies. Gene-editing technology is currently one of the most interesting areas. The plant breeding methods using this technique have the advantage of greatly improved accuracy and efficiency of the plant genetic correction compared with conventional breeding methods, which has raised expectations for the useful application of this technology as a cutting-edge breeding technology. Although not all countries around the world currently have established appropriate regulation policies on crops developed with gene-editing technology, the number of cases in which GMO regulations are not applied on a case-by-case basis according to the scientific background is growing. However, Korea has not yet established policies on which criteria should be applied to crops generated from the application of gene-editing technology. As the number of cases of crop development and commercialization using gene-editing technology is expected to increase in the near future, it will be necessary to prepare reasonable policies to support developers and seed industries in Korea to ensure harmonization with international regulatory policy trends.
세계 인구는 지속적으로 성장해 왔으며, 향후 2050년에는 약 96억명에 이를 것으로 예상되며, 이에 따른 세계 곡물 수요는 2005년에 비해 약 2배 이상 증가할 것으로 전망하고 있다(Tilman et al. 2011). 기후 변화, 경작지 감소, 수자원 부족 등 농업 생산성에 부정적인 요인이 빈발하는 가운데 향후 인구 증가에 대비하기 위한 안정적 식량 확보를 위해서는 작물 육종 기술의 혁신을 통한 생산성 향상은 필수적이다. 작물의 생산성 향상을 위해 오랜 시간 동안 선발육종, 교배육종, 돌연변이육종을 거쳐 유전자재조합기술, 그리고 최근에는 유전자가위 기술까지 다양한 육종기술들을 발전시켜 사용하여 왔다.
전통적으로 식물의 작물화 및 개량을 위해 선발육종 방법이 사용되어 왔다. 선발육종을 이용하여 현대 작물의 선조인 야생식물을 장기간에 걸쳐 반복 선발함으로써 농업적으로 유용한 유전 형질을 가진 현대의 작물을 만들어 낼 수 있었다(Dempewolf et al. 2017). 오늘날에도 선발육종을 비롯한 교배육종, 돌연변이 육종 등 다양한 방법들이 작물 개량을 위해 사용되고 있으나(Fig. 1), 주요 작물의 대부분은 이미 지난 수 천년 간 선발육종 및 교배육종의 결과 산물이기 때문에 유전적 다양성이 높지 않다는 문제점이 발생되고 있다. 이런 이유로 전통 육종 방법을 통한 형질 개선의 효율성이 예전 같이 높지 않다는 것이 현실적 어려움이다. 이러한 한계를 극복하고자 작물 게놈에 무작위 변이를 유발시키는 돌연변이 육종도 품종 개발의 주요 방법으로 이용되어 왔지만, 변이 발생이 무작위적이라는 단점이 있다(Pacher & Puchta 2017).
Fig. 1
Comparison of breeding methods used in modern agriculture (Source: Chen K. et al. 2019).
KJBS_51_175_fig_1.jpg
이에 비해 유전자재조합 기술은 기존 전통육종의 한계였던 이종간 교배의 어려움을 극복하여 새로운 형질의 도입이 가능하도록 하는 방법으로서, 남 북미 국가들은 물론 중국 등 일부 아시아 국가 등에서 개발 및 재배가 확산되고 있다. 작물 개발에 사용하는 유전자재조합 기술은 단백질 의약품 등 유전자재조합 의약품에 이용하는 것과 같은 기술이며, 기존 관행 육종 방법에 비해 무작위 적인 유전적 변화가 크게 감소된 것임에도 불구하고 상업화 이전에 엄격한 안전성 평가와 승인을 요구하고 있다. 유전자재조합기술을 먼저 실용화하였던 의약품 분야에서는 물론, 1996년부터 실용화된 유전자재조합(GMO) 작물을 지난 20년 이상 안전하게 재배하고 소비한 경험을 통해, 유전자재조합이라는 기술 자체가 위험요인이 아님이 확인되었다고 할 수 있을 것이다(Park et al. 2018). 그럼에도 불구하고 GMO 작물에 요구되는 과도한 규제 때문에 GMO 작물 안전성 평가 및 주요국 승인은 개발된 산물의 명운에 직접적 영향을 주는 주요 변수가 되었으며, 안전성 평가 및 주요국 승인에는 상당한 시간과 비용이 소요되고 있다(Prado et al. 2014). McDougall (2011)의 조사에 따르면, 2008~2012년 기간 중 상업화된 GMO 작물들은 개발부터 안전성 승인까지 평균 13.1년이 소요되었고, 각 이벤트 개발에 소요된 평균 비용 136백만 달러 중 26%인 35.1 백만 달러가 규제 관련 비용으로 평가하고 있다. 현재 세계 대두 재배 면적 중 약 77%가 GMO일 정도로(ISAAA Brief 53. 2017) GMO 농작물 재배 및 소비가 활성화되었음에도 불구하고 주요 작물의 GMO 종자 시장에 중소 규모 종자기업이 접근하지 못하고 있는 주요 원인 중의 하나가 이러한 안전성 규제 및 이의 준수에 필요한 시간적 재정적 제약 때문일 것으로 추정되고 있다.
최근에는 생명공학 기술과 유전체 염기서열 분석 기술의 급속한 발달, 방대한 작물 유전체 기능 분석 자료 축적 등에 힘입어 새로운 생명공학 기술들을 육종에 접목하여 기존 육종 패러다임을 바꾸려는 여러 시도가 진행 중이다. 다양한 육종기술 중 현재 가장 큰 관심을 받고 있는 분야가 유전자교정 기술이며, 이 기술의 핵심은 유전자가위라고 알려진 Meganuclease, Zinc Finger Nuclease (ZFN), Transcription Activator-Like effect (TALEN), Clustered Regularly Interspaced Short Palindromic Repeats (CRISPR/Cas9) 등 위치 특이적 핵산분해효소 시스템을 이용하여 표적 DNA 서열의 특정 부위를 선택적으로 절단(DSBs, double strand breaks)하는 것이다. 이후 절단된 부위는 생물체 자체 기작으로 복구되며, 이 과정에서 염기 중 일부가 소실되거나(deletion), 단편이 삽입되거나(insertion), 또는 다른 염기로 치환되어(substitution) 변이가 일어난다. 이 유전자가위 기술을 이용한 식물 육종 방법은 기존 전통육종 방법에 비해 식물체 내 유전자교정의 정확도와 효율성을 크게 향상시키고, 경제적이면서 빠르다는 장점을 가지고 있어(Chen et al. 2019, Scheben et al. 2017), 미국 Calyxt 등 스타트업 기업은 물론 코르테바, 바이엘, 신젠타 등과 같은 글로벌 기업들이 미국의 Broad Institute, Caribou Biosciences, 한국의 툴젠 등의 유전자가위 기술 보유 기업들과 기술 제휴를 통해 유전자가위 기술을 적용한 작물 품종 개발을 활발히 진행하고 있다(Park et al. 2018). 이들 기업 중 TALEN을 기술적 기반으로 하여 2010년 창업한 Calyxt 사는 세계 종자기업 중 신육종기술개발 및 실용화 측면에서 가장 선도적 위치를 차지하고 있는 대표적 기업으로서, TALEN으로 개발한 고올레산 대두를 2018년 재배 시작하여 2019년에는 고올레산 식용유와 부산물인 고올레산 대두박을 시판하기 시작했다(Calyxt 2019a, Kleter et al. 2019). 이는 세계 최초로 유전자교정 작물 상품을 상업화한 사례로서, 향후 농업분야에서의 유전자교정 기술에 대한 기대감은 더욱 커지고 있다. 이러한 Calyxt 사에 의한 세계 최초 유전자교정 농작물의 상업화는 미국의 과학에 기반한 전향적인 정책 수립에 의한 것으로 분석되고 있다.
현재 전세계 모든 국가가 유전자가위 기술로 개발된 작물에 대한 정책을 마련한 것이 아니지만, 유전자교정 작물을 GMO 규제에서 제외하는 정책을 수립하여 발표하는 사례가 증가하고 있는 추세이다. 최근 한국 정부는 국가 주도의 육종경쟁력을 확보하고자 2018년에 국가육종경쟁력 향상을 위한 차세대 농작물 신육종기술 개발사업에 대한 예비타당성조사를 마쳤으며, 2020년부터 농촌진흥청을 중심으로 유전자교정 기술을 활용한 유용 작물 개발과 실용화를 목표로 ‘신육종기술실용화사업단’을 출범할 계획이다. 이 사업은 국내뿐만 아니라 해외에서 신육종기술이 GM 규제대상에서 제외될 것이라는 가정을 전제로 기획된 것이기 때문에, 향후 우리나라의 유전자교정 작물에 대한 규제 여부가 이 사업의 추진환경 및 성패에 절대적인 영향을 미칠 수 있다.
여기에서는 최근 각광받고 있는 유전자교정 기술을 이용한 작물 개발 및 실용화 상황, 그리고 세계 여러 국가들의 유전자교정 작물의 규제정책 현황 등을 검토함으로써 우리의 관련 정책 수립에 일조하고자 한다.
미국 및 일본의 개발 현황
미국 농무부(USDA-APHIS)는 2011년부터 운영하고 있는 ‘Am I Regulated?’라는 온라인 질의 절차를 통해 유전자가위 기술 등을 통해 육성된 제품의 규제 대상 여부 관련 문의들에 대한 답변을 제공하고 있으며, 유전자교정 식물의 최종산물에 삽입 유전물질(foreign gene)이 존재하지 않는 등의 경우에 해당하는 개체는 규제 대상이 아니라고(not to be regulated) 결정하고 있다(USDA-APHIS 2019). 2014년 이후 2019년 4월 현재까지 규제 대상이 아닌 것으로 답변한 유전자교정 식물은 약 24건에 달한다(Table 1). 최종산물에 삽입 유전물질이 존재하지 않는 경우 이외에도 이미 해당 식물의 유전자 pool에 존재하는 서열을 도입하거나 표적 서열을 단순 제거한 경우 등도 미국 농무부의 규제범위에서 제외될 수 있다.
Table 1
Gene edited crops that the U.S. Department of Agriculture considered to be out of regulatory scope (as of April 2019)z
Table 1
USDA response Institution Plant Intended trait Technology
2019/4/19 Illinois State Univ. Pennycress “Undisclosed” CRISPR
2019/2/25 Max Planck Institute Nicotiana attenuate Modified nectar composition CRISPR
2019/2/8 Intrexon Lettuce “Undisclosed” “Undisclosed”
2018/9/27 Yield 10 Bioscience Camelina “Undisclosed” CRISPR
2018/8/6 Illinois State Univ. Pennycress “Undisclosed” CRISPR
2018/5/14 Univ. of Florida Tomato Fruits lacking the pedicel abscission zone CRISPR
2018/3/20 Calyxt, Inc. Wheat Nutritionally-Enhanced TALEN
2018/3/19 Benson Hill Biosystems Maize Increased yield “Undisclosed”
2018/1/16 DuPont Pioneer Maize Improved resistance to Northern leaf blight CRISPR
2017/12/29 North Carolina State Univ. Tobacco Low levels of nicotine Meganuclease
2017/10/16 USDA ARS Soybean Drought and salt tolerance CRISPR
2017/9/25 Calyxt Alfalfa Nutritional quality TALEN
2017/8/29 Yield10 Bioscience Camelina sativa “Undisclosed” CRISPR
2017/4/7 Donald Danforth Plant Science Center Setaria viridis Delayed flowering time CRISPR
2016/12/2 Simplot Plant Sciences Potato Reduced PPO5 protein TALEN
2016/9/15 Calyxt Potato PPO knock-out TALEN
2016/4/18 DuPont Pioneer Maize Waxy starch CRISPR
2016/4/13 Penn State Univ. White button mushroom Anti-browning CRISPR
2016/2/11 Calyxt Wheat Resistance to powdery mildew TALEN
2015/11/30 Agrivida Maize Increased starch Meganuclease
2015/5/22 Iowa State Univ. Rice Disease resistance TALEN
2015/5/20 Cellectis Plant Sciences Soybean High oleic acid TALEN
2014/8/28 Cellectis Plant Sciences Potato “Undisclosed” TALEN
2012/3/8 Dow AgroScience Maize Reduced phytate ZFN

zProducts that the USDA has not considered to be regulated pursuant to the regulation on the introduction of organisms and products altered or produced through genetic engineering.

‘Am I Regulated?’의 공개된 정보(Table 1)에 따르면, 현재까지 미국에서는 CRISPR, TALEN 등 유전자교정 기술을 적용한 다양한 작물들이 개발되고 있다. 예를 들어, 펜실베니아 주립 대학(Pennsylvania State University)의 갈변 방지 양송이, DuPont Pioneer 社의 찰옥수수, 잎마름병(Northern Leaf Blight) 저항성 옥수수, 플로리다 대학(University of Florida)의 수확성 개선 토마토, 미국 농무부 농업연구센터(USDA-ARS)의 가뭄 저항성/내염성 대두 등은 CRISPR 기술을 적용하여 육성한 것이며, Calyxt 사(Cellectis 자회사)의 고올레산 대두, 흰가루병 저항성 밀, 갈변 방지 감자, 영양성 개선 알팔파, 아이오와 주립대(Iowa State University)의 병저항성 벼, Simplot 사의 흑변 감소 감자 등은 TALEN 기술을 적용하여 육성한 것이다. 이외, Agrivida 사의 전분함량 증대 옥수수와 노스캐롤라이나 주립대학(North Carolina State University)의 니코틴 함량 저감 담배는 Meganuclease 기술을 적용한 것이다.
우리와 같은 주요 곡물 수입국인 일본의 경우도 유전자교정 기술을 이용한 작물의 개발 및 생산성 향상을 위해 연구를 진행하고 있다(Table 2). 일본에서는 주로 국가연구소 및 대학연구기관에서 연구가 이루어지고 있으며, 현재 CRISPR를 이용한 벼와 토마토, 그리고 TALEN을 이용한 감자가 실용화 단계에 접근하고 있다.
Table 2
Gene edited crops known to be being developed in Japan (As of April 2019).
Table 2
Institution Plant Intended trait Technology
National Agriculture and Food Research Organization Rice Yield increase CRISPR
Univ. of Tsukuba Tomato Increase production of gamma amino butyric acid CRISPR
Osaka Univ. Potato Reduced level of steroidal glycoalkaloids TALEN
유전자교정 작물의 개발 및 상용화 과정 사례
2018년 세계 최초로 상업적 재배가 시작된 유전자교정 작물인 고올레산 대두를 개발한 Calyxt 사는 TALEN을 기술적 기반으로 하여 2010년 창업한 NASDAQ 등록 기업으로서, 비교적 신생기업임에도 불구하고 연구개발 투자를 기반으로 하여 상당히 다양한 연구개발 pipeline을 진행하고 있다(Calyxt 2019b, Fig. 2). Calyxt 사의 연구개발 pipeline은 소비자 편익 증진을 위한 형질군(고올레산 대두, 저온 저장 가능한 감자 등) 및 농민 편익 증진을 위한 형질군(흰가루병 내성 밀)으로 대별된다. Calyxt 사가 공개한 유전자교정 형질 및 식물 개발 과정에는 관심있는 유전자(genes of interest)를 동정하는 Discovery 과정 이외 3단계(Phase I, II, III)로 분류된 절차가 포함된다(Calyxt 2019c, Fig. 2). Phase I 단계에는 유전자가위 기술을 적용하여 관심있는 유전자에서 원했던 교정이 이뤄진 종자를 생산한다. 이들 종자는 Phase II 단계에서 형질 검증(trait validation)하는데, 이를 위해 표현형 및 성분 기능 확인을 위한 검정을 실시한다. 또한, 이 단계에서 미국 농무부(USDA)로부터 해당 제품이 규제 대상이 아니라는 것을 확인을 받은 후에 복수 시험지역에서 포장 시험을 반복 실시한다. Phase III 단계에 상업적 규모로 첫 파일럿 생산을 실시하고, 공급망과 재고 처리망 구축을 시작하며, 상품성 시험(customer testing)을 실시한다. 이러한 유전자교정 작물 개발 기술은 관행육종은 물론 GMO 개발에 비해 빠르고 정확하며 경제적이라는 장점을 가지고 있다(Fig. 3).
Fig. 2
Product pipeline of Calyxt company (Source: www.calyxt.com/products/).
KJBS_51_175_fig_2.jpg
Fig. 3
Comparison of crop development processes: genetically modified crops vs. gene edited crops. (Source: www.calyxt.com/technology/comparison-of-crop-development-processes-traditional-vs-calyxt/)
KJBS_51_175_fig_3.jpg
Calyxt 사의 상용화 모델의 예로서 2019년 상업화된 TALEN으로 개발한 고올레산 대두의 경우에는 현재까지 유전자교정 작물에 대한 정책이 수립되지 않은 국가들이 있으므로, 해당 산물의 유통 및 소비가 미국으로 한정될 수 있도록 ‘종자 생산 - 재배 - 가공 - 유통’ 과정을 일반 농산물과 구분하여 관리하는 closed-loop 시스템을 적용하고 있는 것으로 알려져 있는데, 고올레산 대두 등 소위 ‘specialty product’의 경우에는 세계 주요국들이 신육종기술 산물을 GMO 규제에서 제외하는 정책을 수립하더라도 산물의 순도 유지를 위하여 일반 품목의 혼입을 방지해야만 할 것이므로, closed-loop 시스템의 유지는 불가피할 것이다.
이러한 Calyxt 사에 의한 세계 최초 유전자교정 농작물의 성공적 상업화는 유전자교정 기술에 대한 미국의 과학에 기반한 전향적 정책 수립에 의한 것으로 분석되고 있다. 현재 전세계 모든 국가가 유전자교정 기술로 개발된 작물에 대한 정책을 마련한 것이 아니지만, 유전자 교정된 식물을 GMO 규제에서 제외하는 정책을 수립하는 사례가 증가하고 있는 추세이다.
각국의 규제 현황 및 실용화 정책

미국

미국은 세계 각 국 중 유전자교정에 대한 정책적 입장을 가장 명확하게 밝힌 국가이다. 미국 농무부(USDA)는 ‘Am I regulated?’라는 민원 질의 절차를 거쳐 2019. 4월 현재까지 약 24건의 유전자교정 식물(외래 DNA를 포함하지 않음)에 대해 규제 대상이 아니라고 결정했다(USDA-APHIS 2019). 더욱이, 2018. 3월 말, 미국 농무부 장관은 게놈 편집과 같은 최신 기법은 농민이 요구하는 새로운 품종을 제공하는데 현재의 전통 육종 방법에 비해 수년에서 수십 년을 절약할 수 있으므로, 유전자가위 기술을 포함한 신육종기술로 개발된 식물에 대하여 식물 해충(plant pest)이 아니거나 식물 해충을 이용하여 개발된 경우가 아니라면 이는 기존 육종기술을 통해 개발될 수도 있기 때문에, 이를 규제하거나 규제할 계획이 없다는 입장을 발표했다(USDA 2018).

일본

최근 일본의 환경성(MOE)과 후생노동성(MHLW)은 각각 유전자교정 생물 및 식품에 대한 정책을 확정했다. 일본 환경성은 2019. 2월에 유전자교정 생물에 대한 정책을 확정했으며(Japan-MOE 2019), 그 정책 요지는 ‘세포 밖에서 가공한 핵산이 최종적으로 얻어진 생물에 포함되지 않는 경우’에 해당 생물은 GM 생물 등에 해당하지 않으므로 규제 대상에서 제외되며, ‘세포 밖에서 가공한 핵산이 최종적으로 얻어진 생물에 포함된 경우’에도 self-cloning (숙주와 동일한 분류학상의 종(species)에 속하는 생물의 핵산만을 이용한 경우)과 natural occurrence (자연조건에서 숙주가 속한 분류학상의 종 간 사이에서 핵산을 교환하는 종에 속하는 생물(바이러스 및 바이로이드 포함)의 핵산만을 이용한 경우) 인 경우에는 규제 대상이 아님을 명시하고 있다. 이와 관련, 유전자교정 작물을 개발 또는 수입하고자 하는 자는 외래 핵산이 잔존하지 않음이 확인된 생물이라는 것에 대한 정보, 게놈 편집 방법, 부여된 형질 등의 정보를 제공해야 한다. 한편, 2018년 정책(안)에서는 유전자교정 기술 산물 분류에 범용적으로 이용되고 있는 SDN-1, SDN-2, SDN-3이라는 용어가 포함되었지만, 확정된 정책에서는 이들 용어를 사용하는 대신에 규제 대상 여부를 판단함에 있어서 크게 2개 범주 – 즉, 세포 밖에서 가공한 핵산이 최종 생물에 포함되는지 여부 -로 나누었다. SDN-1, SDN-2, SDN-3의 구분은 최종 산물 중 염기서열 변화는 물론 template DNA 사용 여부 등 기술 요소까지 고려했던 것인데, template DNA 없이도 표적 부위의 염기를 치환할 수 있는 기술인 CRISPR base editor 등은 SDN-1, SDN-2, SDN-3이라는 기존 방식으로는 분류가 곤란할 수 있다. 따라서, ‘세포 밖에서 가공한 핵산이 최종 생물에 포함되는지 여부’라고 유전자교정 산물을 분류하는 것은 향후 개발될 수 있는 기술도 포괄할 수 있을 가능성이 커서, 유전자교정 정책의 일관성을 유지할 수 있는 방식일 것이다.
일본 후생노동성도 2019년 3월에 유전자교정 기술을 이용하여 얻은 식품 등의 식품위생상 취급에 대한 정책을 발표했는데(Japan-MHLW 2019), GMO 규제 제외 대상에 대한 표현 방식 등에 있어서 일본 환경성의 정책과 다소간 차이를 보이지만 상당한 공통점이 존재한다. 즉, 최종산물 중 외래 유전자 및 그 일부가 잔존하지 않는다면 유전자가위 절단부위 복구에 따른 염기의 결실, 치환 등이 자연계에서 일어나는 것과 구분되지 않으므로 GMO에 해당하지 않음을 명시했다. 따라서, 개발자 등은 유전자교정 방법, 부여된 형질, DNA 변화에 따른 인체 건강에 악영향 여부, 외래유전자가 잔존하지 않음을 확인하는 정보, 특정 성분이 변경된 경우 해당 성분의 대사계와 관련된 주요성분 변화 등에 관한 정보를 신고하면 된다. 다만, self-cloning 및 natural occurrence에 대한 부분은 향후 사례 및 경험 축적을 바탕으로 판단할 것이라는 입장도 포함시켰다.

남미

남미의 대부분 국가들은 유전자교정 식물에 대한 정책을 이미 마련했거나 논의 중에 있다(Schmidt 2018). 아르헨티나의 농축수산부(MAGYP)는 2015년 세계 최초로 게놈편집을 포함한 신육종 기술에 대한 정책을 수립했다(SAGP 2015, Whelen & Lema 2015). 해당 규정에서 유전자교정 기술로 육성한 작물의 GMO 여부를 판단하기 위한 판단 절차를 마련했으며, 외래유전자(transgene)가 도입되지 않은 유전자교정 작물은 규제 대상에서 면제된다고 명시했다. 칠레, 브라질, 콜롬비아도 최근 아르헨티나 정책과 유사한 결의안을 발표하였으며, 이들 국가 모두 유전자교정 작물을 사안별로 판단하여 외래유전자가 도입되지 않은 유전자교정 작물은 규제하지 않는다고 명시하였다(Schmidt 2018). 현재 온두라스에서도 이들 국가와 유사한 정책을 논의 중에 있고, 다른 남미 국가들도 이와 유사한 정책을 채택할 것으로 생각되고 있다.

유럽

유럽연합의 유전자교정 식물에 대한 실질적 정책 논의는 이제 시작이라고 할 수 있을 것이다. 유럽연합의 환경방출용 GMO규정(Directive 2001/18/EC)은 1990년 처음 제정되었는데, 카르타헤나 바이오안전성 의정서 등 국제 규범 제정 이전에 만들어졌던 것으로서, 독자적인 방식으로 GMO를 정의하고 있다. 유럽사법재판소는 2018. 7월 환경방출용 GMO규정(Directive 2001/18/EC)에 따라 GMO 규제에서 제외되는 돌연변이(mutagenesis)의 범위에 대해 평결했는데(Court of Justice of the European Union 2018), 평결의 요지는 ‘유럽연합의 GMO 규제에서 제외되는 돌연변이란 관행적으로 사용되어 왔고 오랜 안전 사용경험이 있는 돌연변이 기술’이라고 요약할 수 있다. 이 평결의 결과, 과학자들은 돌연변이 기술의 하나라고 평가하지만 그 역사가 길지 않은 유전자교정 산물은 GMO에 해당한다고 해석되는 것이다. 이 평결이 가지거나 가지게 될 부정적 파급력 때문에 유럽연합의 과학단체들을 중심으로 평결에 대한 이견이 제시되었으며, 2018. 11월 유럽연합 집행위원회의 수석과학자문단(Chief Scientific Advisors)은 성명서를 발표하여 새로운 과학 지식과 기술적 발전으로 인해 현재 유럽연합의 GMO 지침은 그 목적에 더 이상 부합하지 않기 때문에 현재 축적된 지식 및 과학적 증거, 특히 유전자교정 기술 등을 반영하여 GMO 규정을 개정할 필요가 있다고 권고했다(Statement by the Group of Chief Scientific Advisors - European Commission 2019). 또한, 네덜란드 등의 유럽연합 회원국들도 유럽연합의 GMO 규정 개정 필요성을 제기하고 있다. 따라서, 2019년 하반기에 구성될 차기 유럽연합 집행위원회가 유럽 사법재판소 평결, 수석과학자문단 의견, 회원국 의견 등 각계 의견을 고려하여 유전자교정 산물에 대한 정책을 결정하게 될 것으로 예상되고 있다.

기타 국가

유전자교정 기술(예, SDN-1 및 SDN-2)을 적용하여 개발된 산물 규제 여부에 대한 정책이 국가별로 논의되고 있으며, 점차적으로 많은 국가들이 규제 정책을 명확하게 하고 있다(Table 3). 현재까지 정책을 확립한 아르헨티나, 브라질, 칠레, 콜롬비아, 일본, 미국(농무부), 이스라엘(USDA FAS 2017) 등 국가들은 최종산물에서 외래유전자가 삽입되어 있는지 여부에 따라 GMO로서의 규제 여부를 판단하고 있으며, 유전자교정 식물이 외래유전자를 포함하지 않는 경우에는 GMO 규제 범주에서 제외시키고 있다. 한편, 법적 해석을 실시했던 뉴질랜드(Fritsche et al. 2018)의 경우에는 유럽과 마찬가지로 유전자교정 식물을 GMO와 동일하게 규제해야 한다는 입장이다.
Table 3
Global status of policy development for gene edited crops (as of April 2019).
Table 3
Status  Country  Agency Is the product is regulated as a GMO (Yes / No)
No DNA sequence from a different species Insertion of DNA from a different species
Targeted deletions Targeted edits Null Segregant Targeted insertions
Policy or policy statement in place Argentina Ministry of Agriculture, Stockbreeding and Fishing No No No Yes Yes
Chile Agricultural and Livestock Service (SAG) No No No Yes Yes
Brazil National Technical Biosafety Commission (CTNBio) No No No Yes Yes
Columbia Instituto Colombiano Agropecuario (ICA) No No No Yes Yes
Japan Ministry of the Environment No No No Uncertain Yes
Ministry of Health, Labor and Welfare No No No Uncertain Yes
Israel National Committee for Transgenic Plants No No No Yes Yes
USA US Department of Agriculturez No No No No No
Canada Canadian Food Inspection Agency and Health Canada Canada follows a novelty-triggered, risk-based regulatory approach.
Legal interpretationy EU European Court of Justice Yes Yes Uncertain Yes Yes
New Zealand High Court of New Zealand Yes Yes Yes Yes Yes
Under discussion Australia Office of the Gene Technology Regulator No Yes No Yes Yes
Honduras SENASA No No No Yes Yes

zIf a plant pest is not involved as donor, recipient, or vector agent.

yLegal interpretation of existing regulation. Real policy discussion may start in the future.

앞서 살펴본 바와 같이, 유전자교정 기술을 이용한 작물의 개발은 소규모 기업들을 중심으로 이루어지고 있다. 이는 유전자교정 기술을 이용한 작물의 개발에 소요되는 시간이 짧고, 원하는 위치에 특이적 변이를 일으킬 수 있어 비의도적 영향이 낮으며, 외래유전자가 도입되지 않은 경우에는 규제 등에 따른 절차가 복잡하지 않으므로 개발에 소요되는 비용이 낮기 때문인 것으로 판단된다. 현재 미국, 일본 등을 비롯한 여러 국가들은 유전자교정 기술을 이용한 작물 개발에 많은 투자를 하고 있으며, 미국 Calyxt 사가 개발한 유전자교정 작물이 2018년 이미 재배 시작되었으며 다른 다수의 유전자교정 작물들도 실용화를 앞두고 있다.
유전자교정과 관련된 국제 동향을 살펴보면, 현재 유전자교정 식물에 대한 정책을 확립한 대부분 국가들이 최종 산물에 외래유전자(foreign gene)가 존재하지 않는 경우 GMO 규제 대상이 아닌 것으로 판단하고 있다. 유럽연합 및 뉴질랜드에서는 이전 과학 기술 검토 및 논의 단계에서 외래유전자를 포함하지 않는 유전자교정 산물을 규제 대상에서 제외하는 것을 제안하는 등의 전향적인 정책 가능성을 시사했지만, 이후 사법기관에서 기존 GMO 관련법의 법적 해석에 따라 유전자교정 기술로 개발된 모든 산물들이 규제 대상에 포함된다고 판결했다. 이러한 사법기관의 판결은 기존 GMO 관련법의 법적 해석에 따른 것으로서 유전자교정 기술에 대해 정책을 수립하여 시행하고자 하는 기관들과는 입장 차이가 있는 것으로 보이며 향후 유럽연합 집행위의 후속조치에 관심이 쏠리고 있다.
우리의 경우, 유전자교정 작물 개발 측면에서는 주로 기초 및 원천연구 단계의 투자가 이뤄지고 있었으며, CRISPR 기술 자체는 세계 최고 수준이지만 아직까지 연구의 상업화 성공 사례가 없다. 따라서, 정부 차원의 차세대 농작물 신육종기술개발사업에 대한 예비타당성 조사를 통해 2020년부터 7년간 760억 원을 투입하는 대형 국책사업으로서 ‘신육종기술실용화사업단’을 출범시켰다. 이 사업은 국내 경지면적 축소와 기후변화 등에 의한 곡물생산량 불확실성 증대에 따른 식량자원 확보 필요성(식량안보), GM작물 등 기존 생명공학기술을 활용한 육종 방식에 대한 현재의 규제, 국내 종자시장의 정체와 수출시장 개척 부진, 민간 종자기업의 영세성, 연구개발역량 부족, 취약한 글로벌 경쟁력, 유전자교정 기술 관련 시장 선점을 위한 국제 경쟁 심화 등을 주요 문제점으로 인식했으며, 이를 위한 해결책으로 국내에서 신육종기술로 종자를 개발하는 것이며, 이는 유전자가위 기술을 비롯한 신육종기술이 국내 뿐만 아니라 해외에서 GMO로 규제되지 않는 것을 전제로 하고 있다. 따라서 이러한 투자가 결실을 맺기 위해서는 이를 뒷받침해 줄 수 있는 규제 정책이 이루어져야 할 것이다.
한국은 현재 유전자교정 기술을 적용하여 육성한 생물체에 대해 어떠한 기준을 적용할 지에 대한 정책이 아직 정해지지 않았다. 향후 유전자교정 기술을 이용한 작물 개발 및 상업화 사례들이 증가할 것으로 전망되므로, 국제적 규제 동향과 조화를 이루면서 국내 개발자들과 우리 종자산업의 발전을 지원할 수 있는 합리적인 정책 준비가 필요할 것이라 판단된다.
최근 새로운 생명공학 기술들을 육종에 접목하여 기존 육종기술을 발전시키려는 여러 가지 시도가 진행 중이다. 이중 현재 가장 큰 관심을 받고 있는 분야가 유전자교정 기술이다. 이 유전자교정 기술을 이용한 식물 육종 방법은 기존 전통육종 방법에 비해 식물체 내 유전자교정의 정확도와 효율성을 크게 향상시킬 수 있다는 장점을 가지고 있어 미래육종기술로서의 유전자교정 기술에 대한 기대감이 커지고 있다. 현재 전세계 모든 국가가 유전자교정 기술로 개발된 작물에 대한 규제 방침을 정한 것은 아니지만, 과학지식 기반에 따라 사안별로 GMO 규제에서 제외하는 방식으로 정책을 수립하는 사례가 증가하고 있는 추세이다. 반면, 한국은 현재 유전자교정 기술을 적용하여 육성한 생물체에 대해 어떠한 기준을 적용할 지에 대한 정책이 미정인 상태이다. 향후 국내에서도 유전자교정 기술을 이용한 작물 개발 및 상업화 사례들이 증가할 것으로 전망되므로, 국제적 규제 정책 동향과 조화를 이루면서 국내 개발자들과 우리의 종자산업을 지원할 수 있는 합리적인 정책 준비가 필요할 것으로 판단된다.
본 연구는 농촌진흥청 차세대바이오그린21사업(세부과제번호: PJ01367503) 의 지원에 의해 수행되었음. 또한, 본 연구에 필요한 자료 제공에 협조해 주신 ISLI Korea의 Sustainability 분과에 감사 드림.
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  • Calyxt. 2019b. Product overview. https://www.calyxt.com/products/
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Gene-Edited Crops: Present Status and their Future
Korean. J. Breed. Sci.. 2019;51(3):175-183.   Published online September 1, 2019
DOI: https://doi.org/10.9787/KJBS.2019.51.3.175
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Gene-Edited Crops: Present Status and their Future
Korean. J. Breed. Sci.. 2019;51(3):175-183.   Published online September 1, 2019
DOI: https://doi.org/10.9787/KJBS.2019.51.3.175
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Gene-Edited Crops: Present Status and their Future
Image Image Image
Fig. 1 Comparison of breeding methods used in modern agriculture (Source: Chen K. et al. 2019).
Fig. 2 Product pipeline of Calyxt company (Source: www.calyxt.com/products/).
Fig. 3 Comparison of crop development processes: genetically modified crops vs. gene edited crops. (Source: www.calyxt.com/technology/comparison-of-crop-development-processes-traditional-vs-calyxt/)

Fig. 1

Fig. 2

Fig. 3

Gene-Edited Crops: Present Status and their Future

Gene edited crops that the U.S. Department of Agriculture considered to be out of regulatory scope (as of April 2019)z

USDA response Institution Plant Intended trait Technology
2019/4/19 Illinois State Univ. Pennycress “Undisclosed” CRISPR
2019/2/25 Max Planck Institute Nicotiana attenuate Modified nectar composition CRISPR
2019/2/8 Intrexon Lettuce “Undisclosed” “Undisclosed”
2018/9/27 Yield 10 Bioscience Camelina “Undisclosed” CRISPR
2018/8/6 Illinois State Univ. Pennycress “Undisclosed” CRISPR
2018/5/14 Univ. of Florida Tomato Fruits lacking the pedicel abscission zone CRISPR
2018/3/20 Calyxt, Inc. Wheat Nutritionally-Enhanced TALEN
2018/3/19 Benson Hill Biosystems Maize Increased yield “Undisclosed”
2018/1/16 DuPont Pioneer Maize Improved resistance to Northern leaf blight CRISPR
2017/12/29 North Carolina State Univ. Tobacco Low levels of nicotine Meganuclease
2017/10/16 USDA ARS Soybean Drought and salt tolerance CRISPR
2017/9/25 Calyxt Alfalfa Nutritional quality TALEN
2017/8/29 Yield10 Bioscience Camelina sativa “Undisclosed” CRISPR
2017/4/7 Donald Danforth Plant Science Center Setaria viridis Delayed flowering time CRISPR
2016/12/2 Simplot Plant Sciences Potato Reduced PPO5 protein TALEN
2016/9/15 Calyxt Potato PPO knock-out TALEN
2016/4/18 DuPont Pioneer Maize Waxy starch CRISPR
2016/4/13 Penn State Univ. White button mushroom Anti-browning CRISPR
2016/2/11 Calyxt Wheat Resistance to powdery mildew TALEN
2015/11/30 Agrivida Maize Increased starch Meganuclease
2015/5/22 Iowa State Univ. Rice Disease resistance TALEN
2015/5/20 Cellectis Plant Sciences Soybean High oleic acid TALEN
2014/8/28 Cellectis Plant Sciences Potato “Undisclosed” TALEN
2012/3/8 Dow AgroScience Maize Reduced phytate ZFN

zProducts that the USDA has not considered to be regulated pursuant to the regulation on the introduction of organisms and products altered or produced through genetic engineering.

Gene edited crops known to be being developed in Japan (As of April 2019).

Institution Plant Intended trait Technology
National Agriculture and Food Research Organization Rice Yield increase CRISPR
Univ. of Tsukuba Tomato Increase production of gamma amino butyric acid CRISPR
Osaka Univ. Potato Reduced level of steroidal glycoalkaloids TALEN

Global status of policy development for gene edited crops (as of April 2019).

Status  Country  Agency Is the product is regulated as a GMO (Yes / No)
No DNA sequence from a different species Insertion of DNA from a different species
Targeted deletions Targeted edits Null Segregant Targeted insertions
Policy or policy statement in place Argentina Ministry of Agriculture, Stockbreeding and Fishing No No No Yes Yes
Chile Agricultural and Livestock Service (SAG) No No No Yes Yes
Brazil National Technical Biosafety Commission (CTNBio) No No No Yes Yes
Columbia Instituto Colombiano Agropecuario (ICA) No No No Yes Yes
Japan Ministry of the Environment No No No Uncertain Yes
Ministry of Health, Labor and Welfare No No No Uncertain Yes
Israel National Committee for Transgenic Plants No No No Yes Yes
USA US Department of Agriculturez No No No No No
Canada Canadian Food Inspection Agency and Health Canada Canada follows a novelty-triggered, risk-based regulatory approach.
Legal interpretationy EU European Court of Justice Yes Yes Uncertain Yes Yes
New Zealand High Court of New Zealand Yes Yes Yes Yes Yes
Under discussion Australia Office of the Gene Technology Regulator No Yes No Yes Yes
Honduras SENASA No No No Yes Yes

zIf a plant pest is not involved as donor, recipient, or vector agent.

yLegal interpretation of existing regulation. Real policy discussion may start in the future.

Table 1 Gene edited crops that the U.S. Department of Agriculture considered to be out of regulatory scope (as of April 2019)z

Products that the USDA has not considered to be regulated pursuant to the regulation on the introduction of organisms and products altered or produced through genetic engineering.

Table 2 Gene edited crops known to be being developed in Japan (As of April 2019).
Table 3 Global status of policy development for gene edited crops (as of April 2019).

If a plant pest is not involved as donor, recipient, or vector agent.

Legal interpretation of existing regulation. Real policy discussion may start in the future.

Table 1

Table 2

Table 3

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