Assessing the Problems that Impede the Sustainability of Fish Culture

in Laguna de Bay, Philippines

Danilo C. Israel

The severity of the various problems confronting

the sustainability of fish culture in Laguna de Bay,
Philippines was reviewed and analyzed, the results and
findings of which are summarized in this article. The
study which was jointly conducted by the Southeast
Asian Fisheries Development Center/Aquaculture
Department (SEAFDEC/AQD) and the Philippine Institute
for Development Studies (PIDS) in 2007 aimed to assess
the aquaculture development in Laguna de Bay.

fishes. By definition, fishpen is an artificial and stationary

water enclosure for culturing fish and other aquatic animal
species. It is made of bamboo poles, wood, screen, and other
construction materials intentionally arranged to prevent the
escape of fish (Fig. 3a). On the other hand, a fishcage is an
artificial and stationary or floating water enclosure smaller
than a fishpen but made up of similar construction materials
(Fig. 3b). In Laguna Lake a fishpen is further defined as
having a water surface area of more than 1.0 ha while a
fishcage has a water surface area of 1.0 ha or less. While
a fishcage in the lake generally has a net bottom a fishpen
has none. Fishpen and fishcage culture in Laguna de Bay
is generally practiced within the aquaculture belt specified
Fig. 1. Laguna de Bay and its watershed
by the Laguna de Bay Fishery Zoning and Management
(Source: Laguna Lake Development Authority)

Laguna Lake also known as Laguna de Bay is the largest

lake in the Philippines. It is located in the middle part of
Luzon bordering the capital region of Metro Manila and
the provinces of Rizal and Laguna, and comprising three
corporate bays: the west bay, central bay and east bay. The
Lake flows and discharges water into Manila Bay through
the Pasig River. The watershed of Laguna de Bay also
known as the Laguna de Bay Region (Fig. 1, Fig. 2), has a
total area of 292,000 ha and spans across 14 cities and 47
municipalities in the provinces of Rizal, Laguna, Cavite,
Batangas, Quezon, and Metro Manila, providing livelihood
to an estimated of 13.2 million people as of 2005.

Fish Culture in Laguna de Bay

Aquaculture is an important livelihood in Laguna Lake, Fig. 2. Laguna de Bay almost blanketed with fish culture
where fish farmers use fishpens or fishcages to culture structures (Source: Danilo C. Israel)

28 Southeast Asian Fisheries Development Center

 in Laguna de Bay is the fish that is produced, which in 2006
was 48,187 mt generating an income of about Philippine
Pesos (PHP) 1.8 billion. The aquaculture industry in Laguna
de Bay also employed 5,152 people in 2006 and generated
for the government total registration fees of about PHP
84.4 million.

Aside from its economic contributions, aquaculture in

Laguna de Bay has significant social implications. Firstly,
the fish produced, mostly milkfish, tilapia, and carps are
not cash crops but are relatively low-value species and
thus, are mainly consumed by the lower economic brackets
of the society which comprise the great majority of the
3a
country’s population. Secondly, the dominant percentage of
the cultured fish in the Lake is sold in Metro Manila where
a highly significant segment of the urban and relatively
politically-sensitive population of the country resides.

Problems Confronting Fish Culture in

Laguna de Bay

From a review of relevant literatures, aquaculture activities

in Laguna de Bay had always been confronted with various
problems that hinder development (Palma et al., 2005;
Lasco et al., 2005; Mane 1987; Delmendo, 1982; De La
Cruz, 1981; Librero and Nicolas, 1981; Nicolas and Librero,
1977). Such previous research studies on Laguna de Bay
identified numerous problems which could be classified into
3b six main groups, namely: technical, production, economic,
social, environmental and institutional problems (Box 1).
Fig. 3. Fishpens (3a) and fishcages (3b) in Laguna de Bay Although grouped as such, the problems are not mutually
(Source: Danilo C. Israel)
exclusive but are generally and actually interrelated.
Plan (ZOMAP), where a maximum of 10,000 ha has been
allocated for fishpen culture and 5,000 ha for fishcage Of the various problems confronting the fish farmers
culture. in Laguna de Bay, social problems such as poaching,
reduction in fishing areas, obstruction of navigational lanes,
The number of fishpen operators and the extent of fishpen overcrowding of fishpens and fishcages, and existence of
culture in Laguna de Bay have increased in recent years. illegal fishpens and fishcages are specific problems which
From 2000 to 2006 for example, the number of registered are either fully or partially caused by the aquaculture activity
fishpen operators and total area of fishpens in the Lake in in the Lake. Furthermore, these problems negatively affect
particular, have risen at an average annual growth rate of not only the aquaculture but also the other sectors in the
almost 10% and more than 8%, respectively. Furthermore, Lake as well.
although the total area of registered fishcages had decreased
at an annual average of more than 12%, the number of In addition, environmental problems such as the occurrence
registered fishcage operators had increased at an average of algal blooms and the deterioration of water quality have
annual growth rate of more than 11%. In 2006, there were been partly attributed as well to the aquaculture activity in
455 registered fishpen operators in Laguna de Bay covering the Lake. This could be due to irresponsible practices such
an area of 12,117 ha and 1,599 registered fishcage operators as the excessive use of feeds, which leads to eutropication
covering an area of 998 ha for a total 2,054 registered fishpen which increases the quantity of phosphate and nitrogen in
and fishcage operators utilizing a total area of 13,115 ha. the water, inducing algal bloom and finally leading to the
Thus in 2006, the maximum limit of 10,000 ha for fishpens deterioration of the water quality. Although improper feed
was exceeded by 2,117 ha while the area covered by the management may be occurring to a certain degree, there is
fishcages was still below the maximum limit of 5,000 ha. also reason to believe that it is not as widely practiced as
The main economic contribution of the aquaculture activities feared. The results of the survey indicated that about 80% of

Volume 7 Number 3: 2009 29

Box 1. Problems that impede aquaculture sustainability in Laguna de Bay, Philippines
Technical problems
• Poorly-sited fishpens and fishcages. Some fishpens and fishcages in Laguna de Bay, although located in the designated aquaculture belts, are
actually poorly sited and not conducive for fish culture.
• Inappropriate culture practices. Some fishpen and fishcage culture practices adopted are inappropriate. For instance, the available natural
food in the water is not fully utilized by the fish in a monoculture system.
Production problems
• Occasional low supply of seeds. Fry and fingerling for stocking are not always available resulting in occasional late stocking, low stocking or
non-stocking of some fishpens and fishcages.
• Poor quality of production inputs. Production inputs used in fishpen and fishcage culture are of low quality resulting in poor harvest
performance and high production costs.
• High prices of production inputs. Over the years, the prices of production inputs have been increasing because of the generally inflationary
trend in the economy and the rising cost of fuel, among others.
Economic problems
• Poor quality and low price of fish. The fish cultured in Laguna de Bay is perceived to be of low quality. As a result, the market price of the fish
is relatively low compared with the same species of fish produced by the other areas of the country.
• Low level of fish processing. Most of the fish cultured in Laguna de Bay are sold fresh or in frozen form. Fishpen and fishcage operators do not
benefit from value addition due to traditional and inadequate technology for fish processing.
• Lack of foreign markets for produce. Fish from Laguna de Bay are generally sold only in the domestic market. Fishpen and fishcage operators
do not benefit from international trade.
• Lack of access to cheap capital. Limited financial capital is a perennial constraint in fishpen and fishcage culture as traditional institutional
sources like banks lend only at high interest rates and with stiff collateral requirements.
• Too many middlemen. The presence of several consignations, wholesalers, retailers and other fish traders have diluted the income derived by
the fishpen and fishcage operators from their operations.
Social problems
• Poaching. The stealing of fish from fishpens and fishcages by poachers reduces the profits of operators and increases the chance of social conflict
as well as forces operators to spend additional cost on security measures.
• Reduction in fishing areas. The construction of fishpens and fishcages, limits the area for fishing by municipal fishermen causing enmity
between the fishers and operators of the fishpens and fishcages.
• Obstruction of navigational lanes. Some fishpens and fishcages obstruct the navigational lanes used by other sectors leading to conflicts
between fishpen and fishcage operators and the other lake water users.
• Overcrowding of fishpens and fishcages. Fishpens and fishcages are highly overcrowded in some areas within designated belts causing conflicts
among fishpen and fishcage operators.
• Existence of illegal fishpens and fishcages. Unregistered and inappropriately constructed fishpens and fishcages exist in Laguna de Bay
including those located within and outside the aquaculture belts.
• Presence of squatters. The presence of illegal settlers in the coastal areas also caused problems particularly to fishcage operators near these
areas as some of these squatters steal the property of operators.
• Shoreline conversion. Some coastal areas are already converted for residential, commercial and industrial uses hindering the movement of
people and materials involved in fishpen and fishcage operations.
Environmental problems
• Occurrence of algal bloom. Algal bloom causes fish mortality or fish kill as stocks die of asphyxiation due to oxygen depletion, while the fish
that could survive from such phenomenon could have tainted flesh and mud-like taste.
• Proliferation of water hyacinth. Water hyacinths crowding around fishpen and fishcages could also cause fish mortality, destruction of pen and
cage structures and obstruction of the navigational lanes.
• Invasion of alien species. The proliferation of alien fish species, particularly the janitor fish of late, destroys the nets and competes for natural
food and living space with the cultured species.
• Occurrence of fish diseases. Cultured fish in Laguna de Bay have also been affected by various diseases that cause fish mortality or fish kill
which in turn reduce the viability of aquaculture operations.
• Deterioration of water quality. The worsening water quality in Laguna de Bay, which is caused mainly by water pollution results to occurrence
of fish diseases, fish mortality and reduced fish quality (Fig. 4).
• Siltation and Sedimentation. Siltation and sedimentation has made Laguna de Bay shallow and reduced the living space for the fish and other
aquatic animals as well as navigational space for man (Fig. 5).
Institutional problems
• Obstructed saltwater inflow. Fishpen and fishcage operators argue that the backflow of saltwater from Manila Bay into Laguna de Bay through
the Pasig River is obstructed. Among others, this reduces the growth and natural food and contributes to the proliferation of water hyacinth.
• Poor access to training and extension. Fishpen and fishcage operators have limited access to training and extension, operating mainly based on
practical experience. This has contributed to the general practice of traditional and less innovative aquaculture practices in the Lake.
• Difficult registration process. The registration process for fishpen and fishcage operations is considered by operators to be difficult, increasing
the time spent and financial costs of registration.
• Overall lack of government support. Overall technical, financial, economic, market support and law enforcement by the government are
considered inadequate by fishpen and fishcage operators. Government agencies are perceived as not doing enough to develop the aquaculture in
Laguna de Bay.
Other problems
• Occurrence of typhoons and floods. Weather-related events like typhoons and floods destroy fishpens and fishcages causing the escape of
cultured fish, destruction of property and economic losses to fishpen and fishcage operators.

30 Southeast Asian Fisheries Development Center

 by industrial sources, and 30% came from domestic sources.
Centeno (1987) further identified industrial effluents,
sanitary wastes, and effluents from agri-business, run-off
from agriculture and inflows from the Pasig River as among
the various sources of water pollution in the Lake.

Severity of the Problems

Through a questionnaire survey, the perceptions of fishfarm

operators in Laguna de Bay on the relative severity of the
various problems confronting their aquaculture operations
were collected and analyzed. Thereafter, the problems were
ranked in terms of their relative severity and tested for
significant differences. The results showed that the problems
Fig. 4. Slums and wastes in Laguna de Bay which were ranked as most severe were the environmental
(Source: Danilo C. Israel) problems such as the deterioration of water quality, siltation
and sedimentation, invasion of alien species, proliferation of
water hyacinth, occurrence of algal bloom, and occurrence
of fish diseases. Of these environmental problems, in
particular, the deterioration of water quality, siltation and
sedimentation and invasion of alien species were found
significantly different from the other problems in terms of
relative severity.

Outside of the environmental problems, there were individual

problems which were also ranked highly in terms of their
relative severity. Specifically, these problems include the
social problem of poaching, institutional problem of limited
overall government support, and the economic problem
brought about by lack of access to cheap capital.

Fig. 5. Boys swimming in the Lake’s silted shores Results of the analysis further indicated that most of the
(Source: Danilo C. Israel) problems were considered by most aquaculture operators in
Laguna de Bay as at least lightly serious. Moreover, many
fishpen operators and 50% of the fishcage operators adopt of the problems, particularly those classified as technical,
the extensive method of culture which depends largely on economic, social, institutional, and other problems were
the natural food in the lake. considered by most respondents as moderately serious.
Furthermore, few respondents considered that the problems
Siltation and sedimentation is another environmental have not really impeded their operations while a substantial
problem in Laguna de Bay that may also be partly number of respondents had no opinion.
attributable to aquaculture. The overcrowding of fishpens
and fishcages in some areas promotes poor water circulation In summary, the analysis therefore showed that environment-
leading to the accumulation of silt and sediments in such related problems in Laguna de Bay are the most severe
areas. Siltation and sedimentation is furthermore aggravated among the problems perceived by the fishpen and fishcage
by the accumulation of decaying bamboos, Anahaw poles operators as seriously confronting their aquaculture
and other construction materials that are left rotting in the operations. In addition to the environmental problems,
lake water by abandoned fishpen and fishcage operations. other individual issues were also considered most severe
As caveat, however, while fishpens and fishcages may particularly poaching, lack of overall government support
have contributed to algal bloom, reduced water quality and and lack of access to cheap capital. It is important to
siltation and sedimentation, it may not be a major cause of remember that some of the problems considered as very
the environmental problems in Laguna de Bay. For instance, serious are also those that are partly or fully caused by the
Bacallan (1997) explained that of the water pollution in the aquaculture operations in the Lake.
lake, 40% came from agricultural sources, 30% was caused

Volume 7 Number 3: 2009 31

Conclusion and Recommendations De La Cruz, C. R. 1981. Fish pen and cage culture development
project, Laguna de Bay, Republic of the Philippines. Paper
The results showed that while aquaculture in Laguna de Presented in Field Level Workshops for the Fish Pen/Cage
Bay is economically and socially important, it is facing Development in Laguna de Bay, FAO/TCP South China
numerous problems foremost of which are the environmental Fisheries Development and Coordinating Programme,
October 1981. http://www.fao.org/docrep/field/003/
problems. These problems, therefore, have to be prioritized
ab755e/ab755e00.htm
and addressed if aquaculture is to continue in the Lake in
Delmendo, M. D. 1982. Fish-pen aquaculture development on
the future. Along this line, the important courses of action
Laguna de Bay, Philippines. In: A. G. Coche (ed.). Coastal
outlined in Box 2, most of which have already been put Aquaculture: Development Perspectives in Africa and
forward by some sectors involved in fishpen and fishcage Case Studies from Other Regions, Vol. CIFA Technical
culture in Laguna de Bay, are strongly recommended for a Paper No. 9, Food and Agriculture Organization, Rome
more rational management of aquaculture in the Lake. Lasco, R. D., M. V. O. Espaldon and M. A. Tapia (eds.). 2005.
Ecosystems and People. The Philippine Millennium
Box 2. Recommendations for more rational aquaculture
Ecosystem Assessment (MA) Sub-Global Assessment.
management in Laguna de Bay, Philippines
College of Forestry and Natural Resources, University
• Illegal structures in Laguna de Bay should be immediately
of the Philippines at Los Banos, College, Laguna,
dismantled. The total area allotted for fishpens of 10,000
ha, in particular, has been exceeded already even counting Philippines; 233 p
registered fishpens alone. Among others, dismantling will Librero, A. R. and E. Nicholas. 1981. The economics of fishpen
help improve the environmental conditions in the lake. farming in Laguna de Bay, Philippines. SCS/PCC/WP-9,
• The optimal area for fishpen and fishcage culture in Laguna Laguna, Philippines
de Bay should be determined once and for all, as some Mane, A. M. 1987. Fishpen culture in Laguna de Bay. In:
sectors argue that the present allotment of 15,000 ha is too
large. There are also concerns that the allotment is beyond
Philippine Council for Agriculture and Resources Research
the specified 10% of the suitable water surface area of all and Development. State of development of the Laguna de
lakes and rivers mentioned in the Philippine Fisheries Code Bay area. Proceedings of the Seminar-Workshop on State
of 1998. of Development of the Laguna de Bay Area, Los Baños,
• Research agencies should fund and conduct more Laguna, Philippines; 25-29
research on environmental problems in Laguna de Bay. As Nepomuceno, D. 2004. Addressing freshwater conflicts: The
environmental problems have been considered relatively
more severe than any other problems, emphasis should be
LLDA experience in Laguna de Bay. Presented at the
put on such concerns in order to serve the interests of the Workshop on Natural Resource-Based Conflicts in the
numerous stakeholders who depend on an environmentally Philippines Sponsored by the United States Agency for
sustainable lake for their livelihoods and needs. International Development (USAID) and the Department
• A clean-up of the waters of Laguna de Bay of decaying of Environment and Natural Resources (DENR), May
bamboos, Anahaw poles and other materials should be 13-14, 2004, Westin Philippine Plaza, Pasay City,
done. This activity may be conducted by the aquaculture
operators within and around their fishpen and fishcages Philippines
while the government can undertake clean-up campaign in Nicholas, E. S. and A. R. Librero. 1977. A socio-economic
the open areas. study of fish pen aquaculture in Laguna Lake, Philippines.
Paper presented at the Second Biennial Meeting of the
Agricultural Economics Society of Southeast Asia, 3-6
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About the Author
Danilo C. Israel, Ph.D. in Resource Economics, is a Senior
Research Fellow at the Philippine Institute of Development
Studies, Makati City, Philippines

32 Southeast Asian Fisheries Development Center