1 1. Introduction Fisheries is a major industry of the Philippine economy which contributes 3.9 percent to the GNP at a current prices and provide about 5 percent of employment to the national labor force. Products from fisheries accounts for 70 percent of the total animal protein intake and 30 percent of total protein intake of Filipinos. The industry earned P12.5 billion in foreign exchange for the country in 1994 (BFAR, 1995). Philippine fisheries is classified into the municipal fisheries, commercial fisheries and aquaculture subsectors. Municipal fisheries refer to fishing in coastal and inland waters. Fishing in offshore waters (beyond 15 km from the shoreline) is the scope of commercial fisheries while aquaculture is the farming of aquatic products in ponds, cages, pens, and open waters. The country’s aquatic resources being tapped for fisheries consist of 220,000,000 hectares of marine territorial waters (coastal and offshore) 588,393 hectares of inland waters (including swamplands, lakes, rivers and reservoirs) and 253,854 hectares of fishponds (Table 1). The Philippine ranked as the 12 th top fish-producing country in the world among 80 countries in 1993. Despite the seemingly abundant aquatic resources of the Philippines and its world status as a fish producer, the fisheries industry in the country is said to be approaching a crisis situation. Overfishing and illegal fishing have led to decline in the marine fisheries catch. There are also problems such as milkfish fry shortage, prawn disease and red tides that have caused a drastic drop in the production from aquaculture.
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1
1. Introduction
Fisheries is a major industry of the Philippine economy which contributes 3.9
percent to the GNP at a current prices and provide about 5 percent of employment to the
national labor force. Products from fisheries accounts for 70 percent of the total animal
protein intake and 30 percent of total protein intake of Filipinos. The industry earned
P12.5 billion in foreign exchange for the country in 1994 (BFAR, 1995).
Philippine fisheries is classified into the municipal fisheries, commercial
fisheries and aquaculture subsectors. Municipal fisheries refer to fishing in coastal and
inland waters. Fishing in offshore waters (beyond 15 km from the shoreline) is the scope
of commercial fisheries while aquaculture is the farming of aquatic products in ponds,
cages, pens, and open waters.
The country’s aquatic resources being tapped for fisheries consist of 220,000,000
hectares of marine territorial waters (coastal and offshore) 588,393 hectares of inland
waters (including swamplands, lakes, rivers and reservoirs) and 253,854 hectares of
fishponds (Table 1). The Philippine ranked as the 12th top fish-producing country in the
world among 80 countries in 1993.
Despite the seemingly abundant aquatic resources of the Philippines and its world
status as a fish producer, the fisheries industry in the country is said to be approaching a
crisis situation. Overfishing and illegal fishing have led to decline in the marine
fisheries catch. There are also problems such as milkfish fry shortage, prawn disease and
red tides that have caused a drastic drop in the production from aquaculture.
There are about one million small fisherfolk dependent on fishing in the
Philippine as a means of livelihood. The quality of life subsistence fishermen and their
families has continued to deteriorate. The population growth rate of 2.3% in the county
is higher than the annual growth rate for fisheries of 1.47% (Bernacsek, 1966).
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The objectives of this paper are to assess the status of the fisheries industry in the
Philippines, identify the constraints for its modernization and recommend an agenda for
its action.
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2. Supply-Demand Situation of the Fisheries Industry
The fisheries supply in the Philippines as of 1994 was about three million tons.
Domestic production accounts for 92% of the total supply while 8% of the supply is imported
(Table 2).
The municipal fisheries subsector is the largest producer of fisheries products with 38%
of the total production. The fishes caught from municipal waters are small and large pelagics
and demersal species from coastal waters, and tilapia from inland waters.
The commercial fisheries subsector is the second largest contributor to the domestically
produced supply with 33% of the total. By definition, commercial fishing vessels weigh at least
three gross tons or more. There were 2,279 registered commercial fishing vessels in 1992. The
common types of fishing gear used are the bagnet, trawl, purse seine and ring net.
The aquaculture subsector contributes 29% of the total fisheries supply consisting mainly
of seaweeds, milkfish, shrimp and tilapia. The aquaculture production by selected species for
1990-1994 is shown Table 3. It should be noted that while seaweeds constitute more than half
of the total production, they are not utilized for human consumption but processed into
industrial products.
The top fisheries producing regions in the Philippines are Southern Tagalog, Western
Mindanao and Western Visayas for municipal fisheries; Metro Manila (NCR). Western Visayas
and Western Mindanao for commercial fisheries and the ARMM, Central Luzon and Western
Visayas for aquaculture (Table 4).
Fisheries production in the Philippines has been on a decreasing trend for the last five
years. An analysis of the annual growth rate (AGR) by subsector for the period 1990-1994
shows a decline from 2.47% to 1.99% for municipal fisheries, 9.95% to 4.73% for commercial
fisheries, and 6.64% to 2.51% for aquaculture (Table 5).
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In 1994, the Philippines imported 82138 tons of fish consisting of frozen sardines and
mackerel which well used as raw material for domestic canning and to supplement local supply
in the wet market during the low fishing season. Moreover, some 35,859 tons of frozen tuna
were imported to supply local canneries which export their products.
An analysis of the import-export trade for fisheries in the last five years indicates an
increasing trend for both import and export of fisheries products (Table 6). The volume of
export increased by 17% from 1990 to 1994 while the volume of import increased by 19% for
the same period. While the Philippines imports more fisheries products than what it exports in
terms of volume, it had a favorable balance of trade in terms of value.
With a population of 68,624,000 and food fish supply of 1,954,686 mt in 1994, the per
capita consumption for fish in the Philippines was estimated to be 28.48 kg. By the year 2010,
with a population of 93,874,000 the expected demand for fish will be an additional 719.120
metric tons over that of the 1994 level. Demand for export and non-food fisheries products are
also expected to increase by 24.12% and 9.12%, respectively, in 20 10 over those of 1994
(Bemacsek. 1996).
During the period 1989-1994. the average rate of decline of the per capita food fish supply
was 2.4% while the increase in fish supply only averaged 0.2% per Year for the period.
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3. Government Policies Affecting the Fisheries Industry
Government policies influence greatly the performance and efficiency of the industries
including fisheries supporting the economy. A review of the past, present and proposed
policy framework affecting the fisheries industry is presented.
a. Past Policy Framework
Commonwealth Act No. 4003 promulgated on December 5, 1993 is considered
the first legislation in the Philippines on fishing and/or fisheries. The Act charged
the Secretary of Agriculture and Natural Resources with carrying out its provisions
which included the establishment of a closed season in the catching of fish,
shellfish, or my other aquatic animal for a period of more than five years in any
specified area in the country. The Act also made unlawful the use of ex-plosives
and any obnoxious or poisonous substance in fishing and the taking or catching of
fry or fish eggs.
Republic Act No. 177 enacted on July 1, 1947 created the Bureau of Fisheries
under the Department of Commerce which gave the Director of the Bureau
technical and quasi-judicial powers.
Republic Act No. 424 enacted on June 7, 195 0 made illegal the possession,
sale or distribution of fish and aquatic animals stupefied, disabled or killed by
means of dynamite and other explosives or toxic substances and providing penalties
for such acts.
Republic Act No. 3512 enacted n March 20, 1963 created the Philippine
Fisheries Commission under the Department of Agriculture and Natural Resources
defining its powers, duties and functions, and fund appropriation. The Act
encouraged the promotion and conservation of fisheries resources to ensure a steady
and sufficient supply of fish and other fisheries resources for the increasing
population.
Presidential Decree No. 43, also known as the Fishery Industry Development
Decree of 1972, provided for the accelerated development of the fishing industry of
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the country. The Decree also provided government financing, training, extension
services, technical assistance and infrastructure for the production, storage,
processing, transportation, marketing and distribution of fish and fisheries
products.
b. Present Policy Framework
(1) Non-Tariff Policies
'The Fisheries Decree of 19't 5 (P.D. No. 704) revised and consolidated all
laws
and decrees affecting fishing and fisheries. Among others, the Decree allowed the
exportation of fish and fisheries products and gave the Bureau of Fisheries and
Aquatic Resources the responsibility for management, conservation, development,
protection, utilization and disposition of all fisheries and aquatic resources of the
country except those of municipal waters which are under. the municipal or city
government concerned.
The Decree also provided for the establishment of fish refuges, sanctuaries and
fisheries reservations, declaration of closed season by area specification, gear or
species and of fish leasing of public lands available for fishpond development and
the prohibition of all forms of illegal fishing such as use of explosives, poisonous
substances, finemesh nets, etc. The law has also imposed stiffer fines and penalties
for illegal fishing practices ,and determined the limit of municipal waters to 7 kin
from the shoreline.
Up to this date, P.D. 704 is still the main legislative framework that has
regulated the fisheries industry of the country.
P.D. No. 1599 issued on June 11, 1978 established the Philippine Exclusive
Zone ,which extended the country’s territorial waters to a distance of' 200 nautical
miles from the baseline from which the territorial sea is measured.
The Philippines was a signatory to the United Nations Conventions of the Law
of the Sea (UNCLOS). The country has established its 200-mile Exclusive
Economic
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Zone (EEZ) as an archipelagic state. However, no official map delineating the
Philippines EEZ has been drawn causing border conflicts with neighboring
countries. The Philippine responsibility, to determine the total allowable catch
(TAC) and capability to harvest the living resources in the EEZ home not been
exercised.
Executive Order 967 issued on June 30, 1987 reduced the Bureau of Fisheries
and Aquatic Resources into a staff bureau to formulate plans for the proper
management, accelerated development and proper utilization of the country's
fisheries and aquatic resources; undertake studies on the economics of the various
phases of the fisheries industry, render technical assistance and advisory services in
the proper procurement construction and operation of fishing vessels; and
recommend plans, programs and policies, rules and regulations on fisheries to the
Secretary of Agriculture and provide technical assistance in the implementation of
the same.
Executive Order No. 240 (1995) creating the Fisheries and Aquatic Resources
Management Councils (FARMS) has institutionalized the role of local fisherfolk
and other resource-users in the communitv-based planning and implementation of
policies and programs for management, conservation, development and protection
on fisheries and aquatic resources. FARMCs are to be established in all barangay,
municipalities and cities where ever relevant.
(2) Tariff Policies
The Investment Incentives Act of 1968 (R.A 5186) included the investment
policy for fisheries development for corporations qualified for Board of Investment
registration and entitlement to fiscal and non-fiscal incentives.
Executive Order No. 1073 enacted on January, 1986 prescribes safeguards for
domestic industries (including fisheries) upon the lifting of imports licensing for
certain productions. Domestic industries need to be assured of elective tariff
protection and efficient mechanisms against unfair trade practices of some countries
and/or unscrupulous activities of certain imposters. Certain provisions of the Tariff
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and Customs Code are used for the effective implementation of the anti-dumping
measure and customs valuation procedures.
Executive Order No. 1016 of July 24, 1972 restructured the rates of import
duties and amended the classification of certain articles under Section 104 of the
Tariff and Customs Code of 1978. The promotion of economic recovery and
sustainable growth requires the removal of structural impediments to enable the
private sector to operate in which market signals enhance its efficiency and
economic potential. The structural impediments that must be removed are import
restrictions that have not only hampered the flow of trade between the Philippines
and the rest of the World but have hindered the efficient development of local
industries.
Central Bank Circular No. 1356.(1992) liberalized the importation of fishery
products such as milkfish, cod, anchovies, herring, mackerel, sardines, tuna and
roundscads, while such importations have been restricted to lean fishing months in
the country, in practices they have posed a threat to local fish producers because of
their lower costs and better quality.
c. Proposed Policy Framework
A Fisheries Code is now being crafted in both houses of Congress. The Code
hopes to codify all fisheries laws and consolidate the agencies and their functions
concerned with fisheries and aquatic resources, aims to promote maximum
sustainable yield and optimum utilization of fisheries resources and ensure
ecological balance. It also advances the rights of subsistence fisherfolk and the
popular and equitable participation of Filipinos in the use, management and
development of fisheries and aquatic resources. The establishment of a Philippine
Fisheries Administration under the Office of the President to replace the Bureau of
Fisheries of Fisheries and Aquatic Resources (House of Representatives version) or
a Department of Fisheries (Senate version) is proposed.
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With the ratification by the Philippine Senate of the Uruguay Round Final Act,
the Philippines has become a member of the World Trade Organization (WTO).
The provisions of the GATT Agreement on Agriculture requires member-countries
to tarify all quantitative import restrictions in agriculture. To prepare the country
for a more liberalized world market under the WTO, certain infrastructure, support
services and policy reforms are needed (Figueroa-Geron and Ver-Pap, 1995).
The reforms needed to enhance the country's comparative advantage in
fisheries include increased access of farmers fisherfolk to postharvest and
processing facilities throught the provision of ice plants and cold storage facilities,
creation of a more conducive rural credit policy environment, and strengthening
research and development on and the extension of appropriate production and
postharvest technologies.
Although fish and fisheries products are not among the commodities that
would be directly affected by the GATT Uruguay Agreement, certain trade
incentives in the Agreement such as the following can be of help: reduction of
tariffs, duties and taxes for the importation of fishing vessels, pails and equipment;
upgrading of quality control procedures to the level acceptable for major importing
countries as required under the Agreement; and active exchange with GATT
member-countries on relevant information on technology and trade.
In complying with the WTOGATT' Agreement of the application on sanitary
and phytosanitary measures (SPS), the Philippines has also committed itself to
harmonize its SPS measures with those of the Codex Alimentarius Commission and
Office International des Epizooties for processed fishery products and live aquatic
animals, respectively. The SPS measures include all relevant laws, decrees,
regulations, requirements and procedures applied to protect animals or plant life or
health within the territory of the member-country of the WTO from risks arising
from entry, establishment or spread of diseases, disease carrying organisms or
disease-causing organisms. Quarantine treatment includes the relevant
requirements associated with the transport of animals or with materials necessary
for their survival during transport (Guerrero, 1996).
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4. Constraints of the Philippine Fisheries Industry for Modernization and Government
Programs
There are various support systems and mechanisms necessary for the modernization of
the fisheries industry. Among these are human resources, market access, the institutional
framework, public investments natural resources, credit and government programs. The
weaknesses of such support systems/mechanisms or constraints are discussed in this
chapter.
a. Human Resource Development (HRD)
Education, research and extension services play an important role in the sustainable
use and management of the country's fishery and aquatic resources (Ventura, 1995).
Skills enhancement particularly of subsistence fisherfolk is essential for their social
upliftment from poverty.
An appraisal report of the World Bank in 1977 defined the Philippine Agriculture
Education System (including fisheries) as a "a crisis of quality". There are 74 schools of
fisheries in the country, 33 of which are state colleges and universities. As of 1993, there
was a total of 129 fisheries programs offered in tertiary schools. Despite the proliferation
of fisheries schools and programs, there is a mismatch between the number and quality
of manpower outputs from these schools leading to unemployment and underemployment
of mediocre fisheries graduates (Fernandez, 1995).
A survey conducted by the Technical Panel for Agricultural Education in 1993
found that of the 35 fisheries state colleges and universities offering fisheries programs,
only 34% has 60-79% compliance with the minimum standards for faculty quality,
physical facilities and financial resources. Most of the institutions had lack of funds for
faculty development and research. There were very few teachers who had graduate
degrees in their respective fields of specialization.
It is ironic that while there appears to be an oversupply of fisheries graduates in the
labor force, employment of these graduates in the fisheries industry is not evident because
of the substandard fisheries educational programs available. While fisheries education
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is influenced by the development of the fisheries industry, there is demand for well-
trained manpower required for fisheries development.
The manpower for fisheries research and development in the country has been
assessed by the Philippine Council for Aquatic and Marine Research and Development.
As of March 1993, a total of 829 researchers were involved in fisheries and aquatic
resources R&D. Out of this total, 54 were PhDs, 221 were MS degree holders and 444
were BS graduates. The distribution of the researchers according to field of
specialization is shown in Table 7.
With the implementation of the Local Government Code, more than 18,000
agricultural technicians of the Department of Agriculture were devolved to the local
government units under the direct supervision of local executives. Lack of funding and
skills development has limited the extension services of these personnel to fishfarmers
and fisherfolk. The Agricultural Training Institute of the DA with its 7 regional
fishermen’s training centers (R.FTCs) and 17 farmers' training centers is servicing the
training needs of LGU technicians and farmers/fisherfolk on fisheries technology