Philippine Institute

for Development Studies

Policy Notes
Surian sa mga Pag-aaral
Pangkaunlaran ng Pilipinas ISSN 1656-5266 No. 2007-04 (November 2007)

Assessing the severity of problems

of aquaculture in Laguna de Bay:
practitioners’ perspectives

Danilo C. Israel
ered. With public resources increasingly
becoming limited, a comparative assessment

L
of the problems will help aquaculture
institutions, managers, and researchers
identify those that need most attention.
aguna de Bay, also known as Laguna
Lake, is the largest lake in the Philippines In this light, the Southeast Asian Fisheries
and among the largest in Southeast Asia. It Development Center, Aquaculture Depart-
is a highly significant natural resource with ment (SEAFDEC AQD) and the Philippine
various economic uses to its surrounding Institute for Development Studies (PIDS) are
population, one of which is aquaculture. currently conducting a joint study on the
Since the discovery that some fish species current state of aquaculture in Laguna de
can be grown in controlled environments in Bay. One of the study’s objectives is to
the lake, including those that are not native identify and assess the relative importance
to its waters, rapid aquaculture development
has occurred within the lake area. PIDS Policy Notes are observations/analyses written by PIDS researchers on cer-
tain policy issues. The treatise is holistic in approach and aims to provide useful inputs
for decisionmaking.
Although aquaculture is already a major
This Notes is based on the draft report of the SEAFDEC AQD–PIDS study on the
industry in Laguna de Bay at present, its
current state of aquaculture in Laguna de Bay and is a joint publication of the two
practice has, however, been constrained by collaborating institutions. The author has a Ph.D. in resource economics and is Senior
numerous problems. Some of these prob- Research Fellow at the Institute and Affiliate Research Specialist of SEAFDEC AQD.
The views expressed are those of the author and do not necessarily reflect those of
lems may be widely known but their relative
PIDS and SEAFDEC AQD or any of the study’s sponsors.
importance or severity has yet to be consid-
2

of the current problems in aquaculture in Profile of Laguna de Bay

the lake, particularly for the fishpen and Laguna de Bay is located in the middle part
fishcage operators who are its main practi- of Luzon bordering the capital region of
tioners. Data and information used by the Metro Manila and the provinces of Rizal and
study were gathered through a cross-section Laguna. Its total watershed area, also known
survey of fishpen and fishcage operators as the Laguna de Bay region, is about
and through interviews with key public and 292,000 hectares (Figure 1). There are
private sector informants. This Policy Notes around 100 rivers and streams draining into
presents some of the highlights of the the lake. The entire watershed spans 14
comparative assessment of the problems cities and 47 municipalities with a total
done. population of 13.2 million in 2005.

Figure 1. Map of the Laguna de Bay watershed Laguna de Bay has a total water surface area
and its sub-basins
of about 90,000 hectares, average depth of
2.5 meters, maximum depth of 20 meters,
average water volume of 2.25 billion cubic
meters, and length of coastline of 285
kilometers (LLDA 2006). The numerous
biological resources found in the lake
include fish, molluscs, crustaceans, and
other animal and plant organisms. Aside
from aquaculture, Laguna de Bay is used for
business, transportation, electricity, indus-
trial cooling, agriculture, recreation, and as
floodwater reservoir.

Background of aquaculture
in Laguna de Bay
The practice of aquaculture in Laguna de Bay
started when fishpen culture was first
attempted by the Philippine Fisheries
Commission in 1965 using various freshwa-
ter species (Mane 1987). Then, in 1970, the
Laguna Lake Development Authority (LLDA)
successfully demonstrated the commercial
culture of milkfish in fishpens in its pilot
Source: Laguna Lake Development Authority project in Cardona, Rizal. As a result, fishpen

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milkfish production grew by leaps and they are not mutually exclusive but are
bounds in the following years. From only 38 actually interrelated. The problems of aquacul-
hectares in the 1970s, fishpens in Laguna de ture in Laguna de Bay are the following:
Bay increased to more than 30,000 hectares
in 1983 (Nepomuceno 2004). Technical problems
Poorly sited fishpens and fishcages –
Meanwhile, fishcage culture in Laguna de some fishpens and fishcages in Laguna de
Bay was first attempted in the early 1970s Bay, although located in the designated
also inside the LLDA fishpen pilot project in belts, are actually poorly sited and not
Cardona, Rizal (Garcia and Medina 1987). In conducive for the practice of fish culture.
1977, cage culture of Nile tilapia started to Inappropriate culture practices – some
develop as a commercial enterprise in the fish culture practices used in the lake are
lake. The tilapia fishcage industry noticeably inappropriate. For instance, the practice of
grew in 1981, particularly along the monoculture in fishpens may not utilize all
Binangonan and Cardona side of Talim the available natural food for fish in the
Island in Rizal and expanded elsewhere in water.
the lake in the succeeding years.
Production problems
In 2006, there were 455 registered fishpen Occasional low supply of seeds – fry and
operators and 1,599 fishcage operators for a fingerling for stocking are not always
total of 2,054 aquaculture operators located available, resulting in the occasional late
in designated fishpen and fishcage belts in stocking, low stocking, or nonstocking of
Laguna de Bay. The area covered by fishpen some fishpens and fishcages.
operators in the lake was 12,117 hectares Poor quality of production inputs –
while that by fishcage operators was 998 some of the production inputs used in
hectares for a total area of 13,115 hectares. aquaculture operations are of low quality,
resulting in low harvest performance or
Problems of aquaculture in Laguna higher production costs.
de Bay High prices of production inputs – over
Based on interviews with key informants, the years, the prices of production inputs
aquaculture in Laguna de Bay is currently have increased because of the generally
facing numerous problems. For our purpose, inflationary trend in the economy and the
these problems may be classified as mainly rising cost of fuel, among others.
technical, production, economic, social,
environmental, and institutional problems. Economic problems
However, it should be remembered that Poor quality and low price of fish – the
while the problems may be grouped as such, fish produced in Laguna de Bay is perceived

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Too many middlemen – the

presence of several middlemen,
including consignacions, wholesal-
ers, retailers, and other fish traders
has diluted the income that aquac-
ulture operators receive from their
operations.

Social problems
Poaching – poaching reduces
the harvest of fishpen and fishcage
operators and increases the chance
of conflict as well as forces opera-
tors to spend on security measures
to prevent it.
Reduction in fishing areas –
In 2006, there were 455 registered fishpen operators occupying 12,117 hectares in
Laguna de Bay. because of the construction of
fishpens and fishcages, municipal
to be of poor quality. As a result, the market fishermen fish in smaller areas, causing
price of the fish is relatively low compared much enmity between them and the aquacul-
to fish from other areas. ture operators.
Low level of fish processing – most of Obstruction of navigational lanes – some
the fish produced in Laguna de Bay are sold fishpens and fishcages obstruct navigational
in fresh or frozen form. Fishpen and fishcage lanes used by other sectors, thereby causing
operators have not benefited from value problems between them and the aquaculture
addition due to processing. operators.
Lack of foreign markets for fish – fish Overcrowding of fishpens and fishcages
from Laguna de Bay is generally sold only in – some fishpen and fishcage operations are
the domestic market. Fishpen and fishcage highly overcrowded in aquaculture desig-
operators have not benefited from interna- nated belts, causing conflicts between
tional trade. aquaculture operators.
Lack of access to cheap capital – limited Existence of illegal fishpens and
financial capital is a perennial constraint of fishcages – unregistered and illegally
aquaculture operators as traditional institu- constructed fishpens and fishcages exist in
tional sources like banks lend only at high Laguna de Bay, including those located
interest rates and stiff collateral require- within and outside the aquaculture belts.
ments. Presence of squatters – the presence of

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illegal settlers in the coastal areas has Siltation and sedimentation – siltation
caused problems, particularly to fishcage and sedimentation has made Laguna de Bay
operators near these areas as some of these shallow and reduced the living space for the
squatters steal property of operators. fish and other aquatic animals as well as
Shoreline conversion – some coastal navigational space for man.
areas near aquaculture belts are already
converted for residential, commercial, and Institutional problems
industrial uses which hinder the movement Obstructed saltwater inflow – aquacul-
of people and materials for aquaculture ture operators argue that the backflow of
operations. saltwater from Manila Bay into Laguna de
Bay through the Pasig River is obstructed.
Environmental problems Among others, this reduces the growth and
Occurrence of algal bloom - algal bloom natural food and contributes to the prolif-
causes fish mortality or fish kill as stocks die eration of water hyacinth.
of asphyxiation due to oxygen depletion. Poor access to training and extension –
Furthermore, the fish that survive has a aquaculture operators have limited access to
tainted flesh and mud-like taste. training and extension and operate mainly
Proliferation of water hyacinth – water based on practical experience. This has
hyacinths crowd fishpen and fishcages and contributed to the practice of traditional
cause various problems like fish mortality, and less innovative aquaculture practices in
destruction of pen and cage structures, and the lake.
obstruction of navigation.
Invasion of alien species – the prolifera- Fishcage culture in Laguna de Bay was first attempted in the early
tion of alien fish species, particularly janitor 1970s.

fish of late, has caused problems. This fish

destroys nets and competes for natural food
and living space with cultured species.
Occurrence of fish diseases – cultured
fish in Laguna de Bay is affected by various
diseases that cause fish mortality or fish kill
which in turn reduce the viability of aquacul-
ture operations.
Deterioration of water quality – the
worsening water quality in Laguna de Bay,
which is caused mainly by water pollution,
leads to fish mortality, fish kill, and/or
reduced quality of fish.

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In general, the aquaculture problems which were In general, the aquaculture problems which
considered very serious as a group by more were considered very serious as a group by
respondents were the environmental problems. Of more respondents were the environmental
these problems, those which were individually problems. Of these problems, those which
considered as very serious by more respondents were were individually considered as very serious
the deterioration of water quality, siltation and by more respondents were the deterioration
sedimentation, and invasion of alien species. of water quality, siltation and sedimentation,
and invasion of alien species. Those which
Difficult registration process – the were considered as very serious by relatively
registration process for fishpen and fishcage fewer respondents were the occurrence of
operations is considered by operators to be algal bloom, proliferation of water hyacinth,
difficult and long, thereby increasing the and occurrence of fish diseases.
time and financial costs of registration.
Overall limited government support – Outside of environmental problems, there
overall technical, financial, economic and were individual problems belonging to the
market support, and law enforcement by the other problem classifications which were
government are inadequate. Government considered as very serious by more respon-
agencies are perceived as not doing enough dents than others. These include the eco-
to sustainably develop aquaculture in nomic problem of lack of access to cheap
Laguna de Bay. capital, social problem of poaching, and the
institutional problem of limited overall
Other problems government support.
Occurrence of typhoons and floods –
weather-related events like typhoons and The results also indicate that all of the
floods destroy fishpens and fishcages problems considered within all the group-
causing the escape of fish stock, destruction ings were considered by most respondents
of property, and economic losses to the as at least lightly serious. Furthermore, many
aquaculture industry in the lake. of the problems, particularly those classified
as technical, economic, social, institutional,
Relative severity of the aquaculture and other problems were considered by most
problems respondents as at least moderately serious.
Based on the survey of fishpen and fishcage It is noted as well that few respondents
operators conducted for the study, the considered any of the problems as not a
relative importance or severity of the afore- problem while a substantial number of
mentioned problems of aquaculture in respondents had no opinion.
Laguna de Bay was analyzed as shown in
Table 1.

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Table 1. Relative severity of the problems in aquaculture in Laguna de Bay, 2007

Problems Very Moderately Lightly Not No Opinion Total

Serious Serious Serious a Problem

Technical Problems
Poorly sited fishpens and fishcages 23 101 31 3 22 180
Inappropriate culture practices 13 103 31 4 29 180

Production Problems
Occasional low supply of seeds 8 38 89 6 39 180
Poor quality of production inputs 8 31 98 4 39 180
High prices of production inputs 8 37 92 4 39 180

Economic Problems
Poor quality and low price of fish 28 91 27 5 29 180
Low level of fish processing 11 90 36 8 35 180
Lack of foreign markets for fish 10 96 30 8 36 180
Lack of access to cheap capital 63 65 14 4 34 180
Too many middlemen 28 91 27 5 29 180

Social Problems
Poaching 100 43 16 6 15 180
Reduction in fishing areas 23 95 37 3 22 180
Obstruction of navigational lanes 38 80 28 5 29 180
Overcrowding of fishpens and fishcages 23 101 31 3 22 180
Existence of illegal fishpens and fishcages 38 86 22 5 29 180
Presence of squatters 12 90 27 9 42 180
Shoreline conversion 23 95 37 3 22 180

Environmental Problems
Occurrence of algal bloom 89 32 18 2 39 180
Proliferation of water hyacinth 89 38 12 2 39 180
Invasion of alien species 136 17 3 2 22 180
Occurrence of fish diseases 74 50 20 6 30 180
Deterioration of water quality 140 22 6 1 11 180
Siltation and sedimentation 138 24 6 2 10 180

Institutional Problems
Obstructed saltwater inflow 15 96 35 4 30 180
Poor access to training and extension 15 102 29 4 30 180
Difficult registration process 24 63 52 1 40 180
Overall limited government support 85 58 9 3 25 180

Other Problems
Occurrence of typhoons and floods 15 96 35 4 30 180

Note: The respondents include 60 fishpen operators and 120 fishcage operators.

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Giving primary importance to the environment-re- should agree with the current worldwide
lated problems in Laguna de Bay should agree with trend for sustainable exploitation as a
the current worldwide trend for sustainable exploita- development strategy. Hence, it is prudent
tion as a development strategy. Hence, it is prudent that these problems be given primacy in the
that these problems be given primacy in the efforts to efforts to further develop aquaculture in
further develop aquaculture in Laguna de Bay. Laguna de Bay. In addition to the potential
gains for aquaculture, addressing the envi-
ronment-related problems should provide
Conclusion benefits to the other economic sectors that
The results of the study indicate that the depend on an environmentally healthy lake
environment-related problems of aquacul- for the successful pursuit of their goals.
ture in Laguna de Bay may be the ones
considered by fishpen and fishcage opera- References
tors as the most serious of those they are Garcia, A.M. and R.T. Medina. 1987. The state of
facing. In light of limited resources, there- development program of cage culture in
fore, these problems should be prioritized Laguna Lake. Proceedings of the Seminar-
Workshop on State of Development of the
by pertinent government institutions,
Laguna de Bay Area, Philippine Council for
managers, and researchers in pursuing their Agriculture and Resources Research and
activities related to aquaculture in the lake. Development, Los Baños, Laguna, Philippines.
In addition to the environmental problems, Laguna Lake Development Authority. 2006. Laguna
the individual issues of lack of access to de Bay Environmental Monitor 2006. A report to
cheap capital, poaching, and limited overall the stakeholders of the Laguna de Bay region.
government support should also be consid- Mane, A.M. 1987. Fishpen culture in Laguna de
Bay. Proceedings of the Seminar-Workshop on
ered.
State of Development of the Laguna de Bay
Area, Philippine Council for Agriculture and
Giving primary importance to the environ- Resources Research and Development, Los
ment-related problems in Laguna de Bay Baños, Laguna, Philippines.
Nepomuceno, D. 2004. Addressing freshwater
conflicts: the LLDA experience in Laguna de
For further information, please contact Bay. Presented in the Workshop on Natural
The Research Information Staff Resource-Based Conflicts in the Philippines
Philippine Institute for Development Studies sponsored by the United States Agency for
NEDA sa Makati Building, 106 Amorsolo Street, Legaspi Village, 1229 Makati City
International Development (USAID) and the
Telephone Nos: (63-2) 894-2584 and 893-5705
Fax Nos: (63-2) 893-9589 and 816-1091 Department of Environment and Natural
E-mail: [email protected]; [email protected] Resources (DENR), May 13-14, Westin Philip-
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Policy Notes