3. STATUS AND DEVELOPMENT OBJECTIVES

Bhutan has completed its fourth Five-Year Plan and now is in the preparatory stage of its fifth Five-Year Plan. Table 1 gives a general picture of the estimated gross national product (GNP) by sector for 1979-80.

The fifth Five-Year Plan was scheduled to run from 1 April 1981, but the Government postponed its implementation until 1 April 1982 for further refinement and amendment. The period 1981/82 can be considered as a gap year. However, the annual plan is being implemented.

In the proposed fifth Five-Year Plan (1982–87), the Royal Government has formulated detailed sectoral policies aimed at achieving the overall economic and development objectives, to become self-reliant. To meet the overall economic and development objectives, budgetary allocations have been further critically reviewed and revised (Table 2), with the aim of contributing to GNP from the various sectors (Table 3).

The country's economy is based mainly on a traditional type of agriculture including animal husbandry and forestry, and it provides employment to 95 percent of the labour force.

3.1 AGRICULTURE

Of the total land area, about 70 percent is covered by forest, 9 percent is under cultivation and the rest is wilderness. Agriculture development has been given high priority in all development plans as this sector has the highest contribution to the GNP (28 percent in 1979–80).

Table 1

GROSS NATIONAL PRODUCT AT MARKET PRICES
1979-80 (ESTIMATES)
(in B.N. million)

Table 2

PROPOSED OUTLAYS FOR THE FIFTH FIVE-YEAR PLAN (1981–86)

Table 3

GROSS NATIONAL PRODUCT - 1985-86 ESTIMATES (AT 1979-80 PRICES) (in B.N. million)

Paddy, wheat, barley, maize, millet and potatoes are the major crops. Traditionally, Bhutan has been self-sufficient in food production. Though the cultivable land has considerably increased in past decades, the agriculture production has not kept up with the growth in consumption levels brought about by the development process. As a result, for the past few years, Bhutan has been a net importer of food grains from India. In the last few years, there have been annual imports of cereal grains ranging from 5 000 to 15 000 t¹. In 1979–80, total cereal production is estimated to have been about 94 000 t, with paddy the major crop, accounting for 40 percent of the total.

¹ Source: Country Review Meetings, Country Presentation, Bhutan United Nations Conference on the Least Developed Countries, 1981

3.2 ANIMAL HUSBANDRY

Animal husbandry is an integral part of farming activities in Bhutan and, especially in the high altitude or alpine regions, animal husbandry forms virtually the sole economic activity. The consumption of animal products is an important element of the Bhutanese diet but consumption levels are low owing to poor productivity. The national animal protein consumption data are not available; however, a recent FAO/UNDP Agriculture Planning Mission has estimated 0.8 kg of pork meat, 0.2 kg of poultry meat and 2.7 kg egg consumption in 1970. Consumption data of beef, mutton (goat and sheep) and fish have not been included. Where fish consumption is concerned Dubey (1978) ² has made an estimate of about 0.4 kg per caput which seems optimistic compared with the above meat consumption data.

In the fifth Five-Year Plan, major emphasis has been given to increase the production, qualitatively rather than quantitatively, in livestock and its products by diversifying the activities in different disciplines. The total outlay for the animal husbandry sector is proposed to be B.N.100 million, which is 3.8 percent of the allocated budget for the fifth Five-Year Plan.

Among the various disciplines under animal husbandry, fisheries development is considered an integral part and its activities have been supported under the financial allotment of the Animal Husbandry Department. The breakdown of the allocated funds is given in Table 4.

² Dubey, G.P., A survey of the waters of Bhutan. Physiography and fisheries potential. 1978 Rome, FAO, FI:DP/BHU/75/008/1:38 p.

3.3 FISHERIES

3.3.1 Fish as Food

Fish as food is very much liked by the people of Bhutan. The present supply of fish by domestic production is negligible and almost all fish (freshwater or marine) is imported either in fresh or in dried form from the adjacent boarder districts, as well as coastal areas of India. The projection on consumption of fish was estimated at 500 t (65 t of fresh and 435 t of dried fish) in 1976. If supply could be increased fish consumption would also undoubtedly increase.

3.3.2 Background on Fisheries Activities

In Bhutan, warmwater fish culture dates back only a few years, when a private sector farmer became interested and stocked fingerlings of common carp (Cyprinus carpio) in his newly constructed pond in 1977. The fingerlings of common carp were imported from Dhubri (Assam), India.

Prior to this, considerable efforts were made by the late Raja S.D. Dorji to explore the coldwater rivers and streams (covering the major part of the country) for sport fishing by introducing an exotic coldwater fish species, brown trout (Salmo trutta) from Kashmir, India, as early as 1930. The brown trout has established in several rivers and streams, where it has been introduced or restocked, but its management is still in the early development stage.

Table 4

BREAKDOWN OF ALLOCATED BUDGET FOR SUB-SECTORS UNDER ANIMAL HUSBANDRY SECTOR (1982–87)

3.3.3 Projected Fifth Five-Year Plan

Fisheries development activity is still in its infancy in Bhutan, but considering the increasing interest of people for fishculture (especially in the southern plains) and the increasing demand for fish in the local market, the Animal Husbandry Department has now included fish culture promotional activities in the Government's fifth Five-Year Development Plan. It aims to use the potential water resources of the country in producing fish as food to improve nutritional status and to increase the income earning capacity of small-scale farmers through fishculture in warmer parts of the southern districts, as well as to develop sport fishing in cold waters to promote tourism.

The work plan of the fishery development sub-sector aims at strengthening the existing small-scale trout hatchery at Ha to produce at least 0.5 million trout fingerlings to be released in the high altitude rivers and lakes. Similarly, the carp culture demonstration unit at Sarbang (Gaylegphug district), will also be strengthened to produce 1 million carp fingerlings for free distribution to the interested farmers for market food fish production.

In addition, the Plan includes the establishment of four more warmwater fishculture demonstration units, one at Diapham in the eastern region, one each at Gaylegphug and Chirang in the central region, and one at Samchi in the western region, to promote fish culture activities in the country.

To implement the programme, a sum of B.N. 2.21 million has been earmarked for the fifth Five-Year Plan, which is only 2.1 percent of the proposed budget of the animal husbandry sector. A provisional breakdown of this budgetary allocation is shown in Table 5.

The basic data on annual division of the allocated budget under the fisheries development sub-sector have not yet been applied, however, a general division of the allocated budget for different headings has been shown in Table 5.

3.3.4 Existing Facilities

With the introduction of brown trout, a small hatchery was established at Ha with limited facilities to propagate trout and stock in the rivers, streams and lakes. With similar objectives, a second small trout unit was established at Wangchutaba, 8 km south of Thimbu in 1973/74. In spite of limited facilities, both the trout units have produced fingerlings and have stocked the upper streams of Manas, Sankosh and Wang Chu water systems, where the brown trout has established itself. Stocking data of brown trout in rivers, as well as in lakes, for the period 1970–80 have been compiled and shown in Appendix 7 and Appendix 8, respectively.

Table 5

PROVISIONAL BREAKDOWN OF BUDGET ALLOCATION FOR THE FISHERY DEVELOPMENT SUB-SECTOR FOR THE PERIOD OF THE FIFTH FIVE-YEAR PLAN (1982–87)

Very recently, the trout hatchery at Wangchutaba has been demolished and has been shifted to Sarbithang, about 4 km southeast of Wangchutaba.

Stocking of common carp fingerlings was carried out in some private ponds and lakes of Samtegang in 1976 (under project BHU/75/008). The Royal Government took interest to promote warmwater fishculture and to establish the first demonstration unit at Sarbhang (Gaylegphug district) in 1980. A second warmwater fishculture unit was established in Punakha valley, but it was later abandoned on religious grounds. Another fishculture unit is now under construction at Samchi. Size and facilities of existing fishery units are shown in Table 6.

Table 6

EXISTING FISHERIES UNITS AND FACILITIES

In the first unit, the fishculture project was a complete failure as the pond was constructed on a site where the soil could not retain enough water for fish to be cultured; in the second, the project has not yet been a success.

In order to promote fishculture activity, in 1979 two more demonstration ponds were constructed at Shemgang and Kalikhola (Gaylegphug districts) at the cost of B.N. 83 000 and B.N. 97 000, respectively, under the Nutritional Programme of UNICEF.

At the former site, the fish culture programme was a complete failure as the selection of the site and the engineering aspect of construction were found defective; in the latter, the programme has not yet proved its success.

Recently, a third demonstration pond for fishculture has been constructed by UNICEF at a cost of B.N. 30 000, within the Agriculture Farm, Chirang district, and it is still under observation.

3.3.5 Existing Technical Staff

Under the animal husbandry sector, the fishery development sub-sector has the least number of technical staff as it totals only 11 (fishery inspectors - 4, and fishery assistants - 7). Moreover, they are not well trained in warmwater fishculture. Two fishery inspectors and four fishery assistants are engaged in two demonstration units of warmwater fishculture and the remainder in the two trout hatcheries, at Ha and Serbithang.

Three fishery inspectors have a middle-school education, while only one inspector at Ha has a secondary-school education. Of the four fishery inspectors, two working with coldwater fishculture have practical training in trout breeding in India, while the other two, working with warmwater fishculture, have no formal training. The fishery inspector working at Ha has participated in a 6-week inland fishery course at the National Inland Fisheries Institute, Bangkok.

The fishery assistants have been trained by the fishery inspectors locally within the country.

Allotment of technical manpower in various projects has been shown in Table 7.

Table 7

EXISTING TECHNICAL MANPOWER

3.3.6 Fisheries Management

3.3.6.1 Warmwater Fishculture

With the establishment of fisheries demonstration units, fry and fingerlings of Indian major carp (Labeo rohita, Catla catla and Cirrhina mrigala), as well as common carp (Cyprinus carpio), are imported from the state of Assam, India. Due to lack of training and orientation, no attempt has been made to breed carp in the country. The imported fry are reared in the public sector ponds to fingerling size and are distributed, free of cost, to the fish farmers of Gaylegphug, Chirang, Phuntsholing and Samdrup Dzongkhar districts.

Data of imported Indian major carp, as well as common carp fry and fingerlings are shown in Table 8.

Table 8

IMPORTED FRY AND FINGERLINGS

Extension: There are no extension personnel in the field of fishculture under the Animal Husbandry Department. To some extent, extension work has been carried out by the staff of the fish culture demonstration units who are not yet technically qualified. Moreover, extension work is very difficult as the fish ponds are dispersed throughout the district.

Engineering: The engineering aspects of pond construction have been completely overlooked which has caused heavy perculation losses; and infestation of wild fish has made the pond unproductive. In spite of the favourable drainage possibilities, none of the ponds have been made drainable.

Stocking: The stocking of fingerlings is not on the basis of water surface area, but on the wish of the farmers. During the field study, the Mission has found extremely high stocking rates of fingerlings per hectare as shown in Table 9.

Table 9

STOCKING RATE OF FINGERLINGS IN PRIVATE-SECTOR PRODUCTION PONDS

The overstocking of ponds may be caused by:

1. Lack of technical know-how among the technicians, as well as farmers;

2. Free distribution of fish and without any limit.

This type of overstocking of ponds causes low production. Moreover, the limited budgetary resources of the Department are being wasted. Therefore, the Mission advises that the Animal Husbandry Department should study the matter thoroughly and take the necessary steps to avoid such waste.

Pond fertilization: In private sector ponds, proper fertilization was not observed as almost all pond water was highly turbid, while the demonstration unit at Sarbhang was overfertilized to a dangerous level.

Credit support: Though there is a credit scheme to support the agriculture and horticulture activities, no such credit scheme has yet been extended to promote the fishculture programme in Bhutan.

3.3.6.2 Coldwater Fisheries

With the introduction of brown trout in the natural waters of Bhutan, so far two trout hatcheries have been established. In spite of the limited facilities of the hatcheries, both hatcheries are producing a considerable number of brown trout fingerlings which are being stocked in various river systems and high altitude lakes to encourage sport fishing, as well as to support tourism. Brown trout have been stocked in the natural waters since the thirties, but as earlier data are not available, stocking data in the rivers and lakes for the period 1970–80 are shown in Appendixes 7 and 8, respectively.

Although there is ample scope for producing fish as food and/or to promote sport fishing by proper utilization of natural water resources of the country, so far no systematic effort has been made in this direction, except for the stocking of a limited number of brown trout.

3.3.7 Marketing

Fish as food is readily accepted by the people, both fresh or dried and there is high demand. The domestic production of fish, by culture or capture practices is negligible, and therefore the increasing demand is met by importation of fish, either in fresh or dried form, from the adjacent border area of India. Only a small quantity of local fresh fish is seen at Gaylegphug market.

There is no organized marketing in Bhutan, except for the weekly Sunday market. The fish dealers bring fresh fish either in jute sacks or in bamboo baskets with ice. The quality of fresh fish deteriorates by the time it reaches the market due to rough handling, inadequate amount of ice (B.N. 1.25/kg of ice at Gaylegphug and I.Rs. 20–26/50 kg of ice block in India), long transporation and improper storage facilities. Despite the poor quality and high price, there is a high demand in the Thimbu market. There are two fish dealers at Thimbu who bring 80–100 kg of fresh fish in ice which is sold in the Thimbu Sunday market. Fresh fish quality can be greatly improved by using insulated containers with ice.

Although the market at Gaylegphug is small, the flow of fish is found to be smooth and constant. There are two permanent and three temporary fish dealers at Gaylegphug bringing fresh fish from India. The Mission was informed that the average amount of fresh fish sold daily in the Gaylegphug market is about 15 kg, while in the Sunday market, it rises up to 40–45 kg, depending on the flow of other meats, e.g., pork, goat and chicken, as their market price is lower (pork - B.N. 9–11/kg, goat - B.N. 12/kg and chicken -B.N. 10/kg live weight).

During the field study, the Mission has observed at Gaylegphug two Sunday markets (19 and 26 April) and has also confirmed the quantity of fish and freshwater prawns, 48 and 46 kg respectively. The market price of fresh fish at Gaylegphug's Sunday market is controlled and fixed by the local Municipality. In addition to Gaylegphug, Sarbhang (about 30 km west of Gaylegphug) has also a good demand for fish. From these observations, the Mission is of the opinion that there is a ready market to consume the increasing production from the private sector. The selling price of fresh fish, as well as dried fish, at the Thimbu and Gaylegphug Sunday markets is shown in Appendix 9.

Due to distribution and storage problems, fresh fish is not sold in the interior of Bhutan, where dried fish is sold. At Gaylegphug and Thimbu, a large quantity of dried fish is sold in the markets, as well as in a number of local shops. Most of the dried fish for sale is of poor quality and is sold at relatively low prices (B.N. 10–12/kg).

The fifth Five-Year Development Plan proposes to bring 21.5 ha of water surface under warmwater fishculture with an estimated production of 28 t. Considering the demand for fresh fish and the improved distribution method as recommended, the Mission is of the opinion that there is a ready market for the estimated total production of fresh fish.