Not only is it necessary to formulate a policy for use of Government staff and fishery stations in support of the strategic plan - as was done in chapter 7 - an operational plan also needs to be developed for each of the culture systems. In this chapter the Mission provides outlines of such operational plans.
Pilot projects will constitute the major part of the operational plans for most of the culture systems. Only culture of fish in seasonal tanks and aquaculture in salterns are ready to contribute to the supply of fish in the immediate future. The operational plan outlines are summarized in Table 8. The Mission proposes that the management of the pilot projects explicitly incorporate: target formulation, monitoring of results, appraisal of results against targets, and subsequently modification of targets and/or method of implementation. Such an administration of pilot projects will make them, and the strategic plan, self-correcting.
Summary of initial Government actions to develop culture systems that are part of the strategic plan for aquaculture development
| Order of priority | Culture system | Programme activities for Ministry of Fisheries | Additional physical installations financed by MOF | Proposed training of Sri Lankan staff abroad | Type and duration of essential foreign specialist advice |
| a 1 | Culture of fish in seasonal tanks | By 1983: provision of fingerlings for 3 000 ha of seasonal tanks; training of aquaculturists, extension workers (inspectors) and village level workers | 1981/82: construction of 18 ha of ponds, garage, stores shed at Udawalawe; site investigation and designs for National Inland Fisheries Research and Development Centre | Four scientists, each 12 months. Subjects: fish breeding, hatchery operations, spawn and fry rearing technology | Duration: 75 man-months Type: engineering, carp hatchery management, collection of wild fry |
| a 2 | Culture of seaweeds | Survey local trade in dried seaweeds; carry out trials with rope and raft culture of Gracilaria spp. at Trincomalee | Pilot scale culture unit at Trincomalee | None | Seaweed culture expert for two years |
| a 3 | Smallholder shrimp culture | Development of non-conventional designs for pond construction; rearing trials with post-larvae; select site for multipurpose marine hatchery; survey coastal lands for suitable pond sites | 1982: one mariculture station incorporating a multipurpose hatchery on the East coast | 36 man-months practical training in extensive shrimp culture; Thailand, Philippines, Indonesia, India (2 aquaculturists) | Engineering technical advice to run mariculture stations; collection of wild fry |
| a 4 | Culture of molluscs | Survey markets for molluscs; develop a strategy for increased consumption; study need for culture | None | None | None |
| b 1 | Large-scale culture | Assemble technical and economic data on intensive and extensive culture of shrimps in ponds in other parts of the world in order to advise local entrepreneurs on technology | None (but see a3) | None (but see a3) | None |
| b 2 | Pond culture of fresh water fish | Pilot scale: tilapia monoculture tilapia and carp polyculture integrated culture | None | None | None (but advice could be obtained from al) |
| b 3 | Aquaculture in salterns | Assist National Salt Corporation to obtain: (a) penaeid shrimps and grey mullet for stocking and (b) advise on modification of ponds | None (should be financed by National Salt Corporation) | An aquaculturist of the National Salt Corporation should learn pond management and intensive culture of shrimp | One month of engineering time to redesign ponds in salterns |
| b 4 | Culture of marine fish in enclosures | Culture trials with rabbit fish (Siganids). Culture trials with carnivorous fish (snappers, groupers, sea bass, sea bream) | Fixed cages to be installed at: Negombo lagoon (1981) Trincomalee (1982) Jaffna (1983) | Study of ongoing cage culture by visits to: Hong Kong, Kuwait, Malaysia, Singapore, Thailand | Consultant for two months per year for 3 years; consultant for 1 month on collection of wild fry |
| b 5 | Valli culture | Pre-feasibility study of valli culture in Thondai lagoon | None | None | Valli culture expert for an initial visit of 3 man-months |
On its arrival in Colombo, the Mission was requested to consider, and reformulate, if necessary, a UNDP/FAO project proposal entitled “Aquaculture Development and Training”. The project was intended to give general support to aquaculture. The Mission rewrote the project proposal to support the culture of fish in seasonal tanks, which, as described elsewhere, is expected to yield tangible results in the near future. The proposal is included as Annex 16. The expertise that such a project would provide could render assistance also to the Government's efforts to develop pond culture of fresh water fish.
The attempts of the Ministry of Fisheries to culture fish in seasonal tanks have yielded encouraging results. A project to extend such culture can start immediately. The main constraint to starting such an activity now is the technical and logistical one of producing a sufficient number of fingerlings at the right time to stock the tanks. Later, the constraint will be that of organizing villagers in such a manner that the projected production is achieved and distributed. There is an immediate need for better and more facilities for producing and holding fry and fingerlings; and for trained aquaculturists. A better knowledge of the limnological characteristics of individual tanks will be needed to increase production levels.
The technical problem of producing and distributing fingerlings can be solved with the help of foreign specialists. While the social/managerial problems at the village level are best solved by nationals, the local aquaculturists and their technical support staff have little experience in such work. It would be a subject of instruction at Udawalawe.
The mix of species which can be used in culture of fish in seasonal tanks was discussed in section 5.2.3. It includes Indian major carps, not available in Sri Lanka at the end of 1980. For the first two to three years of the programme it might be necessary to import hatchlings or fry.
The species combination introduced into any particular tank will depend upon local preferences for fish, limnological characteristics and availability of fingerlings. The Mission is of the view that for planning purposes one might envisage that fingerlings should be available in about the following proportions: Chinese carps 25 percent, major Indian carps 25 percent, milkfish 20 percent and the remaining 30 percent to be divided between common carp and tilapia.
The stocking rate is estimated to be about 2 500 fingerlings per hectare. The Mission considers that it should be possible to achieve stocking of 1 000 hectares in 1981/82, 2 000 hectares in 1982/83 and 3 000 hectares in 1983/84. Thus, in the first year some 2.5 million fingerlings would be required. This is about the quantity that has been produced and stocked by the existing fish culture stations (see 3.2.3).
After having considered in detail the possibilities of improving and/or expanding the existing facilities at Polonnaruwa, Inginiyagala and Udawalawe, the Mission holds the view that the Ministry of Fisheries is best advised to centre project activities at Udawalawe. The Udawalawe station can be expanded; some 18 hectares of suitable land exists adjacent to the station, and it has the infrastructure for training and housing the staff required during the initial period (for more details see Annex 16).
However, fry produced at Udawalawe would have to be distributed, at least until additional ponds were built, between nursery facilities at Polonnaruwa, Inginiyagala and Dambulla Oya. This should include making use of cages in the reservoirs located nearby these stations. If the project is successful and develops somewhat as outlined in Annex 15, additional facilities (fish culture stations) must be provided and a serious attempt made to stimulate the production of fry and fingerlings on a private basis. Given the geographical distribution of seasonal tanks the next fish culture station ought to be located in the North-Central part of the island. Due to the time-consuming nature of preparatory work (site selection, design, construction) the site investigations for this station ought to start as soon as possible. It would, as mentioned earlier (section 7.3), be expedient to use this station as a National Centre for Development of Inland Fisheries.
In order to provide the necessary know-how regarding spawning of Chinese and major Indian carps, two expatriate aquaculturists should be engaged for a period of not less than three years. Assistance in aquaculture engineering will be required for a period of two to three months during the next two to three years. Two aquaculturists should be trained in the FAO/UNDP training course for senior aquaculturists in the Asian Regional Aquaculture Network.
The station at Udawalawe should be developed as a training centre for aquaculturists, extension workers (medium level aquaculture technicians at the inspector level) and village-level workers.
The training of extension workers and village level workers should start immediately. They will assist in transmitting aquaculture know-how and will organize the distribution of fingerlings from stations to seasonal tanks. The extension workers will spend 6 months, including the breeding season for carps, at the Udawalawe station. A total of 30 inspectors should be trained as extension workers during the coming three years. Village level workers should receive courses of about four weeks' duration. Instruction would include the basic principles of fish culture, live fish transport, pond manuring, predator control, sampling of fish, harvesting methods, maintenance of records and book-keeping. These courses should be free of charge to the participants.
Training at Udawalawe will be, to the extent possible, of the “on-the-job” type. Therefore, the number of trainees at the station at any one time should be relatively low.
The proposed project to develop culture of fish in seasonal tanks should be linked to projects meant to ensure the rehabilitation of minor irrigation tanks for agricultural purposes.
There is no culture of seaweeds in Sri Lanka at present and exploitation of naturally occurring stocks (for export markets) is of an artisanal nature. In the early 1970s culture trials with Gracilaria lichenoides were carried out in Puttalam lagoon.
It will be a few years before any commercial seaweed culture is likely to have established itself in Sri Lanka. At this stage the activities to be undertaken by the Ministry of Fisheries are of an exploratory nature. Their immediate objective should be to generate sufficient knowledge and experience to formulate a sound programme of technical development.
It is suggested that a survey should be made of (a) the collection, trade and export of seaweeds, with the purpose of finding out the extent and the economic aspects of these activities; and (b) the extent of presently exploited seaweed resources, to determine the possibilities of expanding exploitation and probable cost of such expansion.
Experimental and subsequently pilot culture of Gracilaria may be attempted. Trincomalee would appear to be a suitable site.
Seaweed culture does not required a high level of technical competence on the part of the culturist. However, not all seaweeds can be cultured, and in order to identify species and culture methods it would be useful to obtain specialist advice.
Present know-how and experience of shrimp culture is very limited in Sri Lanka. The period 1981–1983 will be needed to prepare for and hopefully develop a culture system that will be economically viable for smallholders. This preparatory phase will be demanding on Government resources: aquaculturists must be trained, facilities must be provided and experiments carried out.
The following actions should be carried out to develop a viable culture system:
Train three aquaculturists in shrimp culture. Suitable training could be received in Thailand, Philippines, Indonesia and India;
Simulate rural pond culture of shrimps giving priority to monoculture of Penaeus mondon and to mixed shrimp culture;
Survey coastal areas for suitable pond sites, considering soil conditions, construction costs and access to feed and post-larvae of shrimp;
Develop pond construction techniques and pond designs for areas with light sandy soils;
Select a site and design a multipurpose hatchery (as part of a mariculture station).
Given the shortage of local expertise, activities (b) through (e) will need expatriate specialist advice for their formulation. The Mission considers that one expatriate shrimp culturist (knowledgeable of both intensive and extensive shrimp culture) will be required at least for three years. An aquaculture engineer will be needed for at least 12 man-months during the next three years. He will primarily be responsible for activities (c) to (e), and should work with a national engineer.
Few molluscs are exploited in Sri Lanka; none are cultured. The reasons for inclusion of mollusc culture in the priority group of culture systems (for Government attention) in the strategic plan for aquaculture development are basically two:
The economics of mollusc culture look favourable (for the national market) in the long run, and simple and cheap culture systems, suitable for poor people are available for some species.
The relatively small effort needed by Government for its introduction (in terms of aquaculturist time and expenditure on fixed installations).
At this time the activities of the Ministry of Fisheries should be strictly exploratory in nature. The exploitation, trade and consumption of molluscs should be surveyed. The information on consumption habits and patterns will be needed to formulate a strategy aiming at the expansion of consumption of molluscs. The reason for promoting mollusc-consumption would be that it might partly replace a high cost (in energy use) group of seafood (marine fishes) by a low-cost group (the molluscs).
The mollusc resources should be surveyed to determine to what extent naturally occurring stocks could be further exploited and at what cost.
These activities can be carried out by the Ministry staff. There is at this stage no need for training of national staff abroad, or for the use of expatriate mollusc specialists.
Sri Lankan corporate enterprises have no experience in organizing shrimp culture, but a few proposals to establish shrimp farms of several hundred hectares are under consideration. It is the Mission's opinion that Sri Lankan industrialists/entrepreneurs are capable of organizing the development activities that are required and to pay for them. The role of the Ministry of Fisheries should at this stage be advisory.
An aquaculturist in the Ministry of Fisheries should be assigned the task of familiarizing himself thoroughly with the experience obtained elsewhere in extensive and intensive pond culture of shrimp. Initially this will be best done in the form of a desk study. The purpose of this activity should be to place the Ministry of Fisheries in a position whereby it would be capable of advising those local entrepreneurs who are considering investing in shrimp culture.
As mentioned above (7.5), the Ministry might want to promote legislation that would limit the potential speculation in land suitable for pond culture of shrimp.
Pond culture of fish is very limited in Sri Lanka. Economically viable culture systems (at the commercial or subsistance level) have not yet been demonstrated.
In the Mission's view it will be at least a year before the Ministry has identified economically viable systems. The efforts needed are relatively modest; two aquaculturists, with supporting staff, full time. There will be no need for overseas training, or foreign expertise specially to advise on pond culture. The expatriate staff who will give advice to the project which will introduce culture of fish in seasonal tanks should be sufficient also to advise the Ministry on its pond culture experiments. The fish culture stations of Inginiyagala, Dambulla Oya and Ginigathena could be used for pond culture trials.
The pond culture experiments should comprise, in order of priority: monoculture of tilapia (Tilapia nilotica and Tilapia mossambica), polyculture of tilapia with carp (both common, Chinese and Indian when available). Experiments should focus on identifying the economically most attractive management schemes separately for the wet zone and the dry zone. Thus, it is essential that the research team includes an economist.
A survey of marginal lands and their water supply is recommended to get an idea of the possible future magnitude of pond culture.
While there is no ongoing commercial culture of fish or shrimps in salterns, experiments with stocking of Chanos chanos are generating some information. The low ranking of aquaculture in salterns in the strategic plan for aquaculture development would suggest that expenses for its development should, to as large an extent as possible, be borne by the directly interested party: the National Salt Corporation (NSC) which can recover the development costs if it makes a success of the culture. Its inputs would be in the first instance the training of staff members in intensive shrimp culture and brackish water pond management. Possibly, at a future date, the National Salt Corporation may have to obtain some engineering expertise to assist in design and selection of construction methods for modifications to ponds or water management structures, as necessary.
The Mission visited the Bundalla works, close to Hambantota on the South coast. Suggestions for modifying the installations and methods of operation so as to expand and improve the production of fish are put forward in Annex 24.
There is no commercial culture of marine fish in cages, but considerable effort is being spent by the Ministry of Fisheries to investigate and popularize culture of fish in cages, both in fresh and brackish waters. It is apparent that if a culture of marine fish in enclosures is to develop, the Ministry of Fisheries must take the lead - nobody else seems prepared to.
As in pond culture, the problem at this stage is to identify, or evolve, a culture management system that makes the effort commercially (or socially) attractive. For tilapia and trout, the technical problems are minor, being a question of adapting to Sri Lankan conditions the management techniques evolved for these species elsewhere. For milkfish and rabbit fish, a culture technology has yet to be fully developed.
Most of the Ministry of Fisheries' activities are now directed at fish in fresh waters. The Mission recommends that more emphasis be given to marine fish, and that the programme be of an experimental nature. To be successful, this programme should be economically attractive and socially relevant. Thus, right from the start the “project management group” should have advice from sociologists and economists.
The Mission recommends that culture trials be concentrated on Siganids spp. and carnivorous species (mainly groupers, sea bass, sea bream and snappers). Suitable sites for trials are: Negombo lagoon, Trincomalee, Jaffna and Batticaloa.
In view of the limited staff of aquaculturists available in the Ministry and the relatively low priority of this activity, it is recommended that the Ministry limits the number of sites to three or four, but assigns one more aquaculturist to the task.
The advice the Ministry is receiving under the ongoing IDRC-sponsored cage culture scheme should be adequate. There would not seem to be any need for overseas training of local staff at this stage.
At this stage the Government should attempt to arrange for an experienced valli-culturist to study the feasibility of valli culture in the Thondai, and adjacent, lagoons. Simultaneously the Ministry of Fisheries should, on the one hand, establish the characteristic (employment, social organization, quantities, values) of present lagoon fisheries in the Jaffna area. On the other hand it should arrange for an evaluation of the best use of the lagoons, involving interests also others than those of fisheries.
