3. POLICIES TO DEVELOP THE FISHERIES SUB-SECTOR - GOVERNMENT VISION

3.1 Plans envisioned by the government

The government's avowed macro-economic policies and strategy of development greatly influence the growth of a particular sector or sub-sector. The Fifth Five-Year Plan (FFYP) stated that the major thrust for fisheries development will be culture and capture fisheries, promotion of rice-fish farming system in the vast floodplains and conservation and management along with institutional and man-power development for equitable distribution of benefits from common property water resources through research on social engineering.

The major objectives for the development of the fishery's sub-sector during the fifth plan-period (1997-2002) were to:

• generate additional employment opportunities in fisheries and ancillary industries to help alleviate poverty;
• increase fish production and improve nutritional levels;
• improve the socio-economic conditions of the fishermen, fish farmers and other people engaged in the fishery sub-sector;
• increase export earnings from shrimps, fish and fish products;
• improve environmental conditions;
• improve the biological and institutional management mechanisms for the judicious use of fisheries' resources;
• strengthen research, extension, management and co-ordination in order to transfer technology and encourage production activities in the private sector, and to ensure sustainable development of resources of the vast floodplains.

3.2 Major programme areas for government during FFYP period

3.2.1 Open-water capture fisheries

A area of 2.8 million ha of fish habitat in the floodplains remains an unutilized resource for fish-production. In order to increase production from open-water fisheries, programmes will have to be instigated to:

• conserve resources through rigorous implementation of the Fish Acts and motivation of fishermen;
• establish fish sanctuaries;
• increase production by massive stockings of fast-growing carp fingerlings in natural depressions and floodplains;
• develop fish culture in paddy fields through protective measures against adverse effects of flood control, drainage and irrigation projects, roads and highways projects, townships and housing projects.

To offset a recent trend in the decline of stocks in open waters, efforts were made to augment these stocks through releases of fish fries into the flood plains. But the programmes did not yield good results. Appropriate procedures and management techniques will have to be put in place to ensure accountability and transparency in the execution of programmes of the five-year-plan for fisheries in open waters.

3.2.2 Closed-water culture fisheries

Bangladesh has over 1.3 million ponds (this figure may be too low) covering an estimated area of 147 000 ha, some 6 000 ha of ox-bow lakes and over 130 000 ha of shrimp farms. Currently, the average production in fresh water ponds is 1.4 t/ha, and that of shrimp farms in brackish waters is only 160 kg/ha. Programmes will be designed to bring all of the 1.3 million ponds under extension programmes of the DOF, BFDC, FRI and NGOs during the five-year-plan period.

3.2.3 Aquaculture in brackish water

An estimated 0.143 million ha of coastal land is under shrimp farming in brackish waters. The method is largely traditional, and current average production is 160 kg/ha. Recently, farmers, especially in Bagerhat and Perojpur, have started to culture shrimps in their paddy fields. Areas for farming are rapidly expanding. Development of brackish-water fisheries will be contingent upon the provision of infrastructures, supply of fry and other inputs, security, technical advice, disease control and training of farmers in improved scientific farming techniques. With more support from DOF, BFDC, FRI and other extension agencies, it will be possible to raise production of shrimps to 400 kg/ha, which will yield an additional production of at least 60 000 t. by the last year of the five-year-plan[13]. Semi-intensive farming is currently practised on 5 000 ha by a number of entrepreneurs, who have achieved production of 3-5 t/ha. The DOF is currently identifying suitable areas for semi-intensive farming and suitable sites for establishing shrimp-hatcheries. Private businessmen will be encouraged to invest in hatchery operations. The government will support development of suitable land by providing roads, electricity and other infrastructures. Joint-venture investments, including foreign investment in hatchery operations, feed production and other related activities will be encouraged.

3.2.4 Marine fisheries

With the extension of an exclusive economic zone (EEZ) up to 200 nautical miles beyond our shore lines in 1974, Bangladesh resumed the responsibility for exploitation and management of living and non-living aquatic resources within its 146 000 sq. km. sea area. Since, unlike mineral resources, fish is a renewable living resource, only judicious exploitation and scientific management and development can ensure maximum benefit from it[14]. Over the last two decades, the share of marine fisheries in the total national yield from fisheries rose from 10.6% in 1970 to about 22% in 1996. If appropriate technology can be adopted, this share can be increased many times.

Increasing pressures on the coastal resources in Bangladesh have caused declines of many marine fisheries in the Bay of Bengal. Small-scale fishing, which contributes about 95% to total marine yield, is largely composed of post larvae and juveniles. Use of crude traditional technology is seriously damaging stocks of fish. Fishermen are using an alarming number of small fishing devices consisting of bag-nets set in estuaries, beach seine nets, and shrimp-seed push-nets that are causing serious over-exploitation of stocks. In order to improve the marine fisheries resources during the fifth five-year-plan period, the following measures and programmes will be implemented:

• assessment of pelagic, demersal and other marine resources and their development;
• studying and monitoring of oceanographic parameters of the EEZ of Bangladesh;
• training of coastal fishermen and providing support services to improve socio-economic conditions of coastal fishing communities;
• issuance of licences to mechanized and non-mechanized boats and identity cards to fishermen;
• continuing supervision and monitoring of fishing operations;
• replacement of destructive gears like estuarine-set bag-nets and beach seine nets by other appropriate fishing gears;
• reduction of mortality of fish and collection of shrimp seed;
• conservation of marine fisheries resources in the mangrove reserve forest;
• cessation of sea piracy by trawlers of neighbouring countries with the help of Coast Guards/Naval Forces;
• pollution control and environmental conservation through strict enforcement of marine fisheries laws and
• proper utilization of trash fish now discarded by trawlers.

3.2.5 Post-harvest technology and marketing

The marketing of fish is largely in the hands of the private sector. It is managed, financed and controlled by a group of intermediaries known as Aratdars and 'mahajans' (money lenders). The Aratdars provide advances to fish traders (Beparies) who, in turn, are required to bring fish to them for sale. The fish marketing system is thus traditional and complex. It is believed that in Bangladesh, 30% to 33% of all fish caught become unsuitable for human consumption. This economic waste could be reduced through the provision of cold-storage facilities, insulated and refrigerated transport systems and adequate supplies of ice. The marketing system will also need to adjust to expanding export demands for quality frozen seafood, higher domestic demand for fresh and frozen quality fish, and large, seasonal fish-catches in areas far from main markets and fish landing centres (marketing aspects are discussed in detail in Section 5).

3.2.6 Peoples' participation in fisheries

The fisheries sector is considered to be the engine that drives sustainable development and socio-economic advancement of rural fishermen and fish farmers. Almost all the activities in the fishery sector, such as the breeding of fish, nursing, feeding, harvesting, transportation, marketing, drying, exporting and other ancillary activities are carried out by the private sector. Research, development, extension and regulatory activities are performed by the public sector. Twenty-two technology packages have already been developed since 1996/97 and are being implemented on an experimental basis. Recently, some NGOs and private development organizations have been involved in organizing groups for income-generating activities and training of the fishing community and subsistence-farmers (a detailed view is given in Section 6). Strong and effective links will be developed between the government, especially local government bodies, non-government and private organizations regarding the planning, implementation and monitoring of the fisheries' development programmes. About 10 000 business opportunities will be developed in different fields of fisheries during the next five years, and job opportunities for 42 500 poor people will be created in this sub-sector.

3.2.7 Emphasis on fisheries research

Present low levels of fish production in Bangladesh are due to a lack of technical knowledge and disease control, improper management and a lack of skilled workers. The onslaught of viral epidemics destroying substantial quantities of pond- and freshwater fishes as well as brackish-water shrimps, has caused the government and the people much concern. Appropriate support in the form of research will be provided to address these issues. In particular, a comprehensive study has been proposed to analyse the sources and causes of fish and shrimp diseases and to identify remedial measures.

3.3 Export earnings

Every year, Bangladesh earns a considerable amount of foreign exchange revenue by exporting fish and fish products, which account for about 8.44% of total foreign exchange earnings. Fish and fish products are ranked third on the list of exported products from Bangladesh (export earnings from diverse sources, including manufactured garments, have increased substantially since the mid-1980s). Share of fish exports, both in terms of quantity and of value, has also increased. During the last decade, the share of export earnings from fish and fish products varied from 7% to 13% of total export earnings of Bangladesh (Table 11). In terms of total quantity of export of 'aqua-products', the quantity exported has almost doubled since 1988-89.

3.4 Export earnings and local consumption of fish

Consumers strongly prefer fresh fish from inland open waters, although using ice for long-distance transport and cold storage for short-term storage of fish is a common practice. A remarkable development of roads and waterways (using engine-powered boats) has made fish available to buyers even in the remotest corners of the country within short periods of time. A newly developed transportation system has made fresh fish more available in the markets and helped to integrate markets at different levels.

Nearly 97% of total fish produced in the country is consumed domestically. Compared to the export market, the domestic market is huge, varied and consolidated in terms of arrivals and disposals (Table 10). In 1995-96, total quantity of fish exported increased 147% over the period of 1989-90, which reflects an increased availability of fish for export in the country. In terms of volume, value and participation, the domestic fish market is large and scattered throughout the country.

Table 10. Fish production and disposal pattern in Bangladesh (t)

Year	1989/90	1990/91	1991/92	1992/93	1993/94	1994/95	1995/96
Export	23 339	26 109	22 080	26 607	31 835	41 686	38 929
% of total	2.73	2.91	2.32	2.61	2.93	3.57	3.09
Domestic	832 188	869 826	929 999	994 047	1 055 265	1 131 000	1 219 012
% of total	97.27	97.09	97.68	97.39	97.07	96.43	96.91
Total	855 527	895 935	952 079	1 020 654	1 087 100	1 172 868	1 257 941

SOURCE: Rahman, 1995, Table-7 and DOF 1995-96, p.42

3.5 Constraints on the development of fisheries

Despite the government's broad-based policies and set objectives, desired success in the fishery sub-sector could not be attained due to several constraints, such as inadequate credit facilities, scarcity of fish fry and absence of adequate regulatory measures in the management of common-property water bodies. Joint ownership of ponds was once identified as a major obstacle to pond-culture fishery (Rahman and Ali, 1986). Recently, the situation has changed to a great extent. Today, the leasing of ponds to outsiders for cash and solely for fish-cultural activities by an owner or several co-owners has become the norm. Not all ponds are equally suitable for every kind of aquaculture. Soil type, water quality, availability of water, geographical location, pond-size and depth, and water-holding capacity influence and affect fish-cultural activities. No data are available on ponds that are located in ecological zones. In the case of capture-fisheries, some of the major factors affecting the desired rate of development and limiting access to fish and fish products are:

• inadequate knowledge,
• over-fishing,
• indiscriminate killing of juveniles,
• destruction of spawning grounds,
• obstruction of migration routes due to unplanned construction of flood-control dams and embankments,
• drainage and irrigation projects
• degradation of water-quality due to indiscriminate use of insecticides and pesticides and industrial wastes,
• unregulated fish conservation laws,
• absence of socio-economically desirable advances of fish technologies,
• low research output,
• improper management of 'jalmahal' water bodies,
• strict controls of the fish trade by intermediaries

Table 11. Export of fish and fish-products from Bangladesh (Quantity (Qty) in t; Value in crore (10⁷) of taka)

Year	Frozen shrimp		Frozen frog		Frozen fish		Dry fish		Salted & dehydrated fish		Turtles/tortoises/crab		Shark fin & fish maws		Total		% of total export earnings
	Qty	Value	Qty	Value	Qty	Value	Qty	Value	Qty	Value	Qty	Value	Qnty	Value	Qty	Value
1986-87	16 275	341.75	2 168	30.56	4 046	35.41	402	4.90	295	3.84	461	4.10	114	3.49	23 761	424.05	12.99
1987-88	15 023	361.17	2 708	42.42	4 191	28.35	475	6.69	372	4.81	524	6.06	130	4.62	23 423	454.12	11.93
1988-89	15 368	382.05	2 685	43.82	2 427	22.59	567	13.89	293	4.12	293	2.65	68	2.77	21 719	471.89	11.51
1989-90	17 505	414.31	730	10.29	3 484	25.58	1278	23.40	161	1.44	146	0.95	35	2.80	23 339	478.77	9.62
1990-91	17 985	451.22	318	7.36	5 702	41.40	427	5.75	1 194	13.95	405	3.22	78	3.72	26 109	526.62	8.64
1991-92	16 730	455.73	771	11.09	2 604	30.10	892	14.11	80	1.39	938	6.52	65	5.41	22 080	524.35	6.91
1992-93	19 224	604.03	-	-	2 704	38.31	1 042	12.26	599	9.84	2 800	21.60	238	14.25	26 607	700.29	7.57
1993-94	22 054	787.73	-	-	3 125	51.18	2 473	41.83	50	1.06	4 088	36.37	45	2.79	31 835	920.96	9.12
1994-95	26 277	1 045.67	-	-	9 267	180.26	521	8.39	649	15.35	4 760	40.67	212	16.60	41 686	1 306.94	9.38
1995-96	25 225	1 106.39	-	-	8 827	176.62	182	3.05	436	11.47	4 203	39.20	56	4.21	38 929	1340.94	8.44

SOURCE: DOF: 1995-96 p.42