STRENGTHENING PALAY SEED SYSTEMS IN SOUTHERN TAGALOG AND BICOL REGIONS1

Jose E. Hernandez2

INTRODUCTION

This professorial lecture is part of the study conducted by the proponent as co-

program leader in the recently concluded program “Collaborative Research,

Development and Extension Services (CRDES) for Food Security in Regions 4A, 4B

and 5” funded by DA-BAR and coordinated by CPAf.

This Program was envisioned to contribute to food security in Regions 4A, 4B and 5,

by strengthening the agricultural extension services through partnerships and

collaboration of the institutions that cater to these services. The Department of

Agriculture through the Bureau of Agricultural Research has commissioned the

University of the Philippines Los Baños (UPLB) to provide technical assistance,

training, and seed production services in the regions of study. The program goal is

food self sufficiency with rice as the initial crop of interest. Together with this is the

aim of increasing farmers’ income. The objective is to strengthen RDE support across

the various players through technical assistance, training, and seed production and

seed systems development in the study areas (Rola, et.al. 2012). A viable rice seed

supply system that will ensure the availability of good quality seeds at the right time

and at affordable prices is important in meeting some of the challenges in the rice

sector. It is therefore imperative to analyze the seed system for rice, to know how

1 Bangko Sentral ng Pilipinas Professorial Chair Lecture presented on 05 March 2013 (2:00-3:30 pm) at Room 101, Crop Science, UPLBCA.

2 Professor, Crop Science Cluster, College of Agriculture, UP Los Baños

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palay seeds are produced until they become certified and commercialized and saved

by farmers; the volume of seeds supplied versus the volume of seeds required by

farmers in an area; and how these seeds flow into the system and accessed by farmers.

A number of government policies govern the formal seed system. A major policy is

the Seed Act of 1992 on which most seed policy issuances, e.g., DA Administrative

Orders (AOs) have been based. There is a system of procedures in variety registration,

accreditation of seed growers and area, seed certification, testing and plant variety

protection . The Regional Seed Coordinators (under the DA regional directors)

coordinate seed multiplication/production and certification with the provincial seed

coordinators (devolved to LGUs).

Results of this study could serve as inputs in planning and setting directions for

improving further the rice seed industry in the Philippines that would facilitate the

attainment of the country’s ultimate goal for either food security or rice self

sufficiency.

Government Programs for Rice Self Sufficiency

During the martial law years (1972-1986), the government of former President

Ferdinand Marcos launched the Masagana (Bountiful Harvest) 99 rice production

program. Its overall goal was to attain self-sufficiency in rice and eventually make the

country a rice exporter. The program advocated the use of technology to enhance the

productive capabilities of farmers. Thus the adequate use of fertilizers, high yielding

varieties or modern varieties, pesticides, credit, farmer education and the presence of

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extension agents, were able to solve the perennial rice problem for a few years. The

country become a rice exporter from 1977 to 1981(Gonzales and Bordey, 2004).

After martial law, the government of former President Cory Aquino implemented the

Rice Productivity Enhancement Program (RPEP). In the early 1990’s the Rice Action

Progam (RAP) was implemented to replace RPEP. When President Ramos assumed

office, his administration introduced the Key Production Approach, which was based

on the principle of planting the right crop in the right place at the right time. This was

the basis of the Medium-Term Agricultural Development Program, with the Grains

Production Enhancement Program (GPEP) as one of banner program. However, the

gains of GPEP were short-lived, as a full-blown rice crisis occurred in 1995 as a result

of low buffer stocks and poor supply management, raising rice prices. As a result, a

new rice program , the Gintong Ani Program (GAP) was launched in 1996 to ensure

food security, organize and transform farmers into viable entrepreneurs, enhance net

farm income, and stabilize the prices of rough and milled rice. During the

Administration of former President Estrada, another rice program, Agriculturang

Makamasa was lounched. It adopted most of the unfinished but feasible components

of the GAP. It had nationwide coverage, capitalized on the promotion of certified

seeds, and targeted average yield of 5-6 t/ha to achieve rice self- sufficiency for the

country. When Estrada administration was removed by people’s power revolt in 2001,

the rice program was continued under a new name, the Ginintuang Masaganang Ani

(GMA) Program under the Arroyo Administration. The large scale commercialization

of hybrid rice technology was one of the highlights of the GMA rice program. The

present Administration of President Aquino have launched the Agri-Pinoy Rice

Program which is one of the banner programs of the Department of Agriculture. It

plays a key role in the Food Staples Sufficiency Program , the cental focus of the

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country’s food security policy from 2011 to 2016. One of the highlights of the present

rice program is the removal of the seed subsidy practiced by the past administrations.

OBJECTIVES AND METHODOLOGY

Seed is an important agricultural input in rice production. Thus it is crucial to analyze

the rice seed system and understand the processes involved in seed production and

distribution. This study assessed the rice seed system in the provinces of Camarines

Sur and Albay in Region 5, Quezon in Region 4A, and Oriental Mindoro in Region

4B and recommended solutions to strengthen rice seed system in the two regions and

possibly in the country

Secondary data were gathered from various reports while primary data were generated

from key informant (KI) interviews. The KIs include experts from the National Seed

Industry Council (NSIC), the National Seed Quality Control Services(NSQCS) of the

Bureau of Plant Industry(BPI), the Philippine Rice Research Institute (PhilRice), the

Department of Agriculture-Regional Field Unit (DA-RFU) of 4A, 4B and 5, the

Office of the Provincial Agriculturist (OPAg), members of the Rice Seed Production

Network (SeedNet) and rice seed growers and dealers in the study areas. Focused

group discussions with agricultural extension workers (AEWs) and farmer groups

were done to learn how services were delivered at the farmer level. All four study

provinces were visited and findings were validated in several fora ( at the provincial

level and at the round table discussions).

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Framework for Regional Food Sufficiency

Regional food security can be attained if the regional food demand can be meet by the

regional food supply (Figure 1.1, Rola and Paunlagui, 2012). The demand as defined

in a standard manner is driven by population growth and income growth. Supply, on

the other hand, can be from local production, regional imports ( such as from region

3), and/or from international trade. Self-sufficiency is attained if supply equals

demand.

Figure 1. Framework for regional food sufficiency (Rola and Paunlagui, 2012)

The other two most important production inputs to attain high regional food supply

will be the availability of seeds and modern technological knowledge of the farmers.

Seed production is essential and must be done in a suitable area within the region.

There must be recognition of the formal and informal seed sources. Community seed

banking is a potentially effective strategy to strengthen seed supply especially for the

rainfed and marginal rice areas.

Regional Food Security

Food Supply Demand

Market

Abroad Regional

Production Other Regions

Imports Population Growth

Income Growth

Regional Agricultural Land Area

Seed Supply

Knowledge Technologies (RDE)

Other Inputs

Formal Informal SUCs LGUs DA-RFUs

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Rice Seed Industry

An efficient rice seed industry is necessary to agricultural development and food

security in the country. The rice seed industry consists of a series of activities

undertaken by individuals, private firms, academic institutions, and public agricultural

research institutes in producing, processing, testing, handling, grading, storing,

distributing, and marketing rice seeds (Norton and Francisco, 2006). In the

Philippines, Republic Act 7038, or the Rice Seed Development Act of 1992, created

the National Seed Industry Council (NSIC) to formulate policies and provide other

forms of assistance to stimulate the development of the seed industry. This council

has been proactive in encouraging improvements in the quality of rice seeds and the

adoption of improved seed by rice farmers.

INSTITUTIONAL AND POLICY ENVIRONMENT

The palay seed system is composed of both formal and informal seed systems. The

formal seed system covers seed production and supply mechanisms that are ruled by

defined methodologies and controlled (stages of) multiplication, and are backed by

national legislation and international standardization of methodologies. (DA Memo

No. 20 series of 2011). The role of the formal seed sector (private and government) is

normally concentrated on seed production and marketing with appropriate compliance

to government policies and regulations. Under the formal seed system, a number of

policies govern the seed sector (Table 1.) The most important policy is the Seed Act

on which most seed policy issuances, e.g., from seed production to seed pricing, have

been based.

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Table 1. Policies governing the palay seed system Policy instruments Title/Provisions

Republic Act No. 7508 of 1992 Seed Industry Development Act Republic Act No. 9166 of 2002 Plant Variety Protection Act- Act providing protection to newly

discovered and developed varieties that are distinct, uniform and stable

Republic Act No. 7607 of 1992 Magna Carta of Small Farmers. Sect 16. Use of good seeds and planting materials- every farmer has the equal opportunity to avail of, to produce and to market good seeds and planting materials.

AO No. 29, Series of 2008 Revising AO No. 15, Series of 2008 prescribing the buying and selling of hybrid rice

AO No. 08, Series of 2008 Prescribing the buying of inbred rice seeds (amending AO No. 10, Series of 2006

AO No. 21, Series of 2007 Revised guidelines on rice seed certification AO No. 20, Series of 2007 Revised criteria for accreditation of inbred rice seed

growers/producers AO No. 18, Series of 2007 Revised seed and field standards for the production of hybrid seeds

and hybrid rice parental seeds AO No. 20, Series of 2005 Revised seed and field standards for the production of hybrid(F1)

seeds and hybrid rice parental seeds (A or CMS Line, Bor maintainer Line and R or Restorer Line)

AO No. 18, Series of 2005 Revised criteria for accreditation of hybrid rice seed growers/producers

MO No. 20, Series of 2011 Guidelines on the implementation of community-based seed banks

Informal seed system covers methods of local seed selection, production, and

diffusion. The farmers themselves produce, disseminate and access seeds directly

from their own harvests or through exchange and barter from within their

communities or nearby ones (DA Memo No. 20. Series of 2011). The seeds may be of

variable quality and the informal seed system is rarely monitored or controlled by

government policies and regulations.

a.Flow of Palay Seeds

The Philippine Rice Research Institute (PhilRice), University of the Philippines Los

Banos (UPLB) and the International Rice Research Institute (IRRI) are the major

research institutions involved in developing new rice varieties (inbreds and hybrids)

for the Philippines. These institutions develop and submit promising lines to the Rice

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Varietal Improvement Group (RVIG), a multi-disciplinary, multi-agency body that

tests, evaluates and recommends to the National Seed Industry Council (NSIC)

varieties for release either as a commercial variety for all regions or for specific

regions or sites. Private companies are mainly involved in developing hybrids.

Norton and Francisco (2006) enumerated and elaborated on the several classes of rice

seeds that move through a distribution chain to reach farmers. Figure 2 illustrates the

flow of seeds into the rice seed system, the actors involved, and their responsibilities.

Breeder seeds is the source for the initial recurring increase of seed of newly

developed varieties, and is the source for the initial increase of foundation seeds. This

seed is controlled by the breeder or institution that developed it. In the Philippines ,

this seed is produced at PhilRice, UPLB and the International Rice Research Institute

(IRRI), and is distributed to PhiRice branch stations and selected rice research and

development networks. The PhilRice and its branch stations and selected networks

then use the breeder seeds as the source of foundation seeds, which is the progeny of

the breeder seed, and this foundation seed is distributed to members of the National

Rice Seed Production network (SeedNet), and to selected foundation seed growers in

the provinces.The PhilRice branch stations , members of the SeedNet and selected

foundation seed growers then produce registered seed as the progeny of the

foundation seed and it, too, is handled to maintain genetic identity and purity.

Registered seed is distributed to all accredited seed growers who produce certified

seed and distribute it to farmers for commercial palay production. Certified seed is

also handled so as to maintain satisfactory genetic identity and purity. In addition to

these seed classes, there is “good seed” which may be produced by accredited seed

growers but did not pass the standards of the seed laboratory.

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Before 1998, rice varieties in the field were mainly inbred (traditional and modern).

With a strong commitment to boost rice production output, the government launched

a Hybrid Rice Commercialization Program(HRCP) in 1998. Hybrid rice seed is the

product of crossing two rice varieties (male and female) with superior qualities, which

results in the creation of a new variety that exhibits the positive or desired traits of

both parents. This phenomenon is termed hybrid vigor or heterosis. Possessing

hybrid vigor makes young rice seedlings produce long roots and broad leaves that

enable them to take up more nutrients, and thus produce more grains. These factors

result in higher yields than inbred rice. Hybrid seed production controlled crossing

between male-sterile rice plants used as female, and a normal, self- fertilizing plant

used as male (Figure 2). The PhiRice, UPLB and IRRI produce the nucleus and

breeder seeds of released public hybrids for release to selected SeedNet members for

foundation parental production, while private seed companies produce their own

proprietary hybrids. The seed growers’ cooperatives, interested NGOs, and other

organized groups as well as accredited individual seed growers produce the hybrid

seeds for distribution and marketing to farmers.

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Figure 2. Flow of inbred and hybrid seeds

b. Seed Variety Registration

Registration of a variety requires that the variety should be as good as or better than a

check variety in terms of agronomic characteristics, e.g. 10% higher yield compared

to the check. As stated in the National Rice Cooperative Testing Guidelines,

promising lines from the breeding institutions must undergo field trials of at least two

wet and two dry seasons to compare yields and other traits with a suitable check

Inbred Hybrid

Breeder seed (White tag)

Foundation seed (Red tag)

Registered seed (Green tag)

Certified seed (Blue tag)

Good seed

Farmer’s seed

Rice growers

Farmers Consumers

F1 (hybrid seed)

F2 (hybrid seed)

X

(parental seed production)

A B

X

(parental seed production)

R A

Source: Norton & Francisco (2006)

Specialized institutions (Breeding institutions, SeedNet members

Private seed co., Coops, trained Seed growers

- Produced by PhilRice-CES, IRRI, & UPLB

- Distributed to Philrice branch stations and selected R & D Networks

- Produced by PhilRice-

CES and branch stations and selected R&D Networks

- Distributed to the members of SeedNet and selected foundation seed growers

- Produced by PhilRice

branch station members of SeedNet and selected foundation seed growers

- Distributed to all accredited seed growers

- Produced and distributed

by all accredited seed growers to farmers for commercial palay production

- Produced by registered

seed growers and farmers from unreleased variety but meet the NSIC’s standard or produced by accredited seed growers but did not conform with NSIC’s standard

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variety. If the promising lines passes the field and grain quality trials, it must be

recommended by the Rice Technical Working Group to the Technical Secretariat and

then to the National Seed Industry Council for approval.

Variety registration is not compulsory. It is voluntary on the part of the breeder.

Institutions that have developed and registered seed varieties with the NSIC includes

government agencies like UPLB, PhilRice , international organization like IRRI, and

private companies such as Pioneer, Cargill, Monsanto, and Bayer.

c. Seed Certification

Seed production and seed certification in the country were started as early as 1953

when the Rice and Corn Crop Improvement Program was implemented (Masajo et al.

2004). The purpose of seed certification is to maintain and make available to the

farmers high quality seed of superior varieties. Seed certification is a process to

ensure genetic and physical purity, germinability, and health before it is sold to

farmers for planting (Table 2).

The following are the mechanics/procedure in seed certification:

1. Accreditation of seed growers

2. Field inspection of seed production areas

3. Seed sampling and testing for seed quality

4. Issuance of results of analysis, and

5. Tagging

Details of the above mechanics/procedures can be obtained from the NSQCS in the

regions and BPI stations.

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Table 2. Seed quality standards in testing inbred seed.

Seed Class

Moisture content (2

replicates at 4-5 g/replicate

Germination rate (%) Varietal purity

Purity (presence of weed seeds)

(2 replicates at 40 g/replicate)

Breeder 14 85 No impurities 99

Foundation 14 85 No impurities 99

Registered 14 85 5 g for 500 g sample 98

Certified 14 85 20 g for 500 g sample 98

1,000 seeds = 22 grams; failure – 5 percent Sources: Interview with Ms. P. Gallardo, Seed Certification Assistant, BPI-NSQCS; DA AO No. 27, Series of 2001

In 2006, there were about 3,500 seed growers who produce certified seeds and more

than 100 SeedNet members who produced foundation and registered seed in all

regions of the country. State Colleges and Universities(SCUs), the Regional

Integrated Agricultural Research Centers (RIARCs) of the Department of Agriculture

(DA), cooperatives, Non-Government Organizations (NGOs), Provincial Local

Government Units (LGUs), and PhilRice stations are members of the SeedNet

(Norton and Francisco,2006). However, key informants reported that the SeedNet

became inactive in 2009.

The Department of Agriculture determines the price of the different classes of seeds

and issues administrative orders to prescribe the buying price (Table 3 ) as guide to

the different agencies involved in the seed program of the government as well as the

seed growers and farmers who would like to avail of the different seed classes.

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Table 3. Buying price of inbred and hybrid rice seed

Seed Class Buying Price (P/kg) Seed Class Buying Price

(P/kg) Inbred rice seed B-Line Breeder 150 Breeder 187 Foundation 80 Foundation 100 Registered 40 Registered 50 Certified 30 F1 Hybrid 195 A-Line R-Line Breeder 1,125.00 Breeder 187.5 Foundation 750 Foundation 100 Registered 375 Registered 50 Sources: Price of inbred seeds – DA AO no. 8 Series of 2008; Price of hybrid rice seed – DA AO No. 29 Series of 2008 NOTE: The standard net weight of seed packs for all classes of inbred seed shall be in 5, 10, 20, or 40 kilos per bag (DA AO 10, Series of 2006); hybrid seeds is 18 kg (DA AO No. 29, Series of 2008).

d. Plant Variety Protection

Under the PVP Act (RA 9166), the breeder has the option to apply for plant variety

protection to acquire exclusive rights over the propagating material so that it cannot

be sold without the owner’s permission. PVP is valid for 20 years.

e. Production and Distribution of Seeds

The establishment in 1994 of the Rice Seed Production Network (SeedNet) by

PhilRice was aimed at facilitating the distribution of seed of newly released varieties

to more farmers in various rice-producing areas in the country (Obien et al. 1996).

Guidelines on the production , regulation, promotion, procurement and distribution of

seeds and planting materials was based on Administrative Order No. 6, Series of

2006. Some of its provisions are the following:

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Production of foundation and registered seeds shall be done primarily by the DA-

RFUs, SUCs, BPI centers and members of the National Rice Seed production

Network (SeedNet).

DA-RFUs, SUCs, BPI centers and breeding institutions shall maintain the production

of appropriate quantity of breeder seeds as reserve for foundation and registered seed

multiplication. DA-RFUs, BPI centers and Rice SeedNet members shall handle the

multiplication of foundation and registered seeds. Registered or accredited seed

growers association, cooperatives and members of SeedNet shall be given first

priority to supply the required seeds to be procured.

Cost of seed sold to growers and farmers also depend to a large extent on government

policies. DA issues administrative issuances prescribing the buying price of inbred

and hybrid seeds (Table 4 )

Table 4. Buying price of inbred and hybrid rice seed (DA Administrative Order No. 29, Series of 2008).

ITEM Buying Price per Kilogram (Php)

Inbred rice seed

Breeder 150.00

Foundation 80.00

Registered 40.00

Certified 30.00

F1 Hybrid Rice Seeds 195.00

A-Line

Breeder 1,125.00

Foundation 750.00

Registered 375.00

B-Line

Breeder 187.00

Foundation 100.00

Registered 50.00

R-Line

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Breeder 187.50

Foundation 100.00

Registered 50.00 Sources: Price of inbred seeds - DA Administrative Order No. 8 Series of 2008 Price of hybrid rice seed - DA Administrative Order No. 29 Series of 2008 Note: The standard net weight of seed packs for all classes of inbred seed shall be

in 5, 10, 20 or 40 kilos per bag (DA AO 10 of 2006); hybrid seed is 18kg (DA AO No. 29, Series of 2008).

f. Community seed banking

The first community seed bank (CSB) was established in 1988 by an NGO known as

the Mindoro Institute for Development Inc (MIND). MIND started development

work in the province of Occidental Mindoro in 1984.The community seed bank(CSB)

in Mindoro was linked to two demonstration farms, to test local traditional rice

varieties, to make them accessible to farmers, to teach rice breeding to farmers and to

promote sustainable, environmentally sound agricultural methods(Cromwell and

Wiggens, 1993).After this, other NGOs like the Magsasaka at Siyentipiko Para sa

Pagpapaunlad ng Agham Pang-Agricultura(MASIPAG) and Southeast Asia Regional

Institute for Community Development (SEARICE) have established community seed

banks in other parts of the country.

In the later part of 2011, the Department of Agriculture issued guidelines on the

implementation of community-based seed banks (CSB). It is considered as an

extension tool to increase farmer’s access to quality seeds, controlled and operated by

farmers within the community which encourage seed production and exchange among

farmers within and outside the community and between farmers and breeding

institutions for greater diversity. The general objective is to increase and promote

farmers access to quality seeds through a sustainable community-based seed bank that

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is organized, developed and managed by farmers, Irrigators Association(IAs),

Farmers Association(Fas), Upland Farmers Organization(UFOs), Peoples

Organization (POs) and non-Government Organization(NGOs).

SEED SYSTEMS IN THE STUDY SITES

A. Camarines Sur

The province of Camarines Sur is composed of 35 municipalities and two cities. The

total physical area for palay production in Camarines Sur is 75,500ha, 72% of which

are irrigated, and the rest are rainfed(Table 5 ). Eighty percent of the total area is

palnted to home-saved seeds (when there is no government subsidy) where average

area is 1.4 ha per farmer. Preferred varieties by farmers are PSB Rc 18 (resistant to

tungro, has good eating quality, and can yield 8 mt/ha, almost the same as hybrid),

PSB Rc 10, PSB Rc 120, NSIC 222, and NSIC 158.

The province has 13 seed inspectors. The Bicol Experiment Station based under DA-

RFU 5 is a member of SeedNet. DA-RFU 5 can get FS and RS from

PhilRice.Registered seeds can be bought from PhilRice, SeedNet and individual seed

growers who buy FS directly from PhilRice. The Bicol Experiment Station produces

RS and some seed growers buy RS from this station. If RS are not available at BES,

seed growers buy RS at PhilRice.

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The palay seed system in Camarines Sur is a combination of formal and informal

system. The informal sector (composed of farmers using saved seeds and exchanged

seeds in their rice production) comprises about 80% when there is no government

subsidy. About 30% or more use CS when there are government distribution

programs. There are few others who buy directly from seed growers.

Table 5. Situationer on rice farms and seed production, Province of Camarines Sur. Item Details

Total rice production area 75,500 ha Irrigated 54,000 ha (72%) Rainfed and upland 21,500 ha (28%) No. of seed growers (as of Feb 2011) 153 Accredited area for seed production (as of Feb. 2011) 1020 ha No. of accredited inbred rice seed growers (Jan.-July 2010) 14 No. of accredited hybrid rice seed growers (Jan.-July 2010) 0 No. of accredited inbred rice seed growers (2007-2009) 169 Area planted to FS (Sept.16,2009-March 15, 2010) 29.7 ha Area planted to RS (Sept .16,2009-March 15, 2010) 471.4 ha Area planted to AXR (Sept.16,2009-March 15, 2010) 3.8 ha No. of bags of RS that passed seed certification (Jan.1, 2010-Aug. 4, 2010)

1,856 bags of inbred

No. of bags of CS that passed seed certification (Jan.1, 2010-Aug. 4, 2010)

34,603 bags of inbred

No. of seed inspectors 13 Member of SeedNet Bicol Experiment Station Seed cooperative Pili Farmers’ Palay Seed Growers’

Cooperative Source: Reports and interviews with staff of the Office of the Provincial Agriculturist of Camarines Sur and Pili

Seed Growers’ Cooperative Camarines Sur has a total of 153 seed growers, 60 growers or 39 % of which are

members of the Pili Seed Growers Cooperative. This cooperative has a total

physical area of 200 ha for seed production which is about 40% of the 500 ha total

physical area for seed production in Camarines Sur. A total of 30,000 to 40,000

bags of CS for 2 croppings are supplied by seed growers in Camarines Sur. Pili

Seed Growers Cooperative supplies 60% of the demand for CS in the province.

The other 40% are supplied by other growers. The cost of producing CS ranges

from PhP30,000-60,000 per ha (Table 6).

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Seed growers claimed that Camarines Sur became self-sufficient in seeds only in

2010 as many growers engaged in seed production. During previous years, they get

seeds from the province of Isabela in Region 2, Region 1, and province of Bulacan.

Table 6. Cost and returns in seed production, per ha. Province Cost (P) Net Returns (P)

Camarines Sur 30,000 – 60,000 36,000 – 85,000

Albay 60,000 36,000 – 60,000

Quezon 40,000

Oriental Mindoro 41,100 54,900 – 78,900

B. Albay

The province of Albay is composed of 14 municipalities and three cities, most of

which are producing rice. Of the total area of 25,495 ha, 76% is irrigated and the rest

is rainfed and upland (Table 6).There are more than 24,000 rice farmers, majority of

which have irrigated farms with an average area of 1.15 ha. Average size of rainfed

and upland farms is 0.8 ha.

Rc18 is the most popular variety in the province.Other popular varieties for irrigated

and rainfed areas include NSIC 222, 216, 214, 160, 158, 122, and 134. Other popular

upland varieties include Rc 11, Rc 9, Rc 22 and Rc 14. Farmers relying on saved

seeds prefer upland varieties such as Milagrosa and Dinorado. They practice rouging

before harvesting on their seed selection to remove mixtures.

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Albay has eight seed inspectors including a Provincial Seed Coordinator (also a seed

inspector) who are all deputized by the DA Secretary to the provincial LGU. There

are no seed inspectors at the municipal level. With 52 active seed growers in Albay,

there is s rstio of 6 growers per inspector. Albay has an accredited seed production

area of 300 ha with 270 ha for RS. There are 52 accredited active seed growers with

47 RS producers and seven hybrid growers(Table 7 ). Based on seed multiplication

rate, if registered seed would yield 100 bags/ha with one bag weighing 40 kg, the RS

accredited area of 270 ha will yield 27,000 bags of CS. With rice area of 24,000 ha

and planting rate of 1 bag of CS/ha, it could be claimed that Albay has sufficient

supply of CS.

Table 7. Situationer on rice farms and seed production, Albay Province. Item Details

Total rice production area 25, 495.54 ha Irrigated 19,433. 3 ha (76%) Rainfed 4,578. 47 ha (18%) Upland 1, 483.77 ha (6%) Total no. of farmers 24,231 Irrigated 17,423 (72%) Rainfed 5, 120 (21%) Upland 1, 688 (7%) Average farm size 1.05 ha Irrigated 1.15 ha Rainfed 0.89 ha Upland 0.87 ha No. of seed growers (as of Feb 2011) 65 (52 active) Accredited area for seed production (as of Feb 2011) 300 ha No. of registered seed (RS) producers 47 Accredited area for RS production 270 ha No. of hybrid growers 7 No. of seed inspectors (including the Provincial Seed Inspector)

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Member of SeedNet Provincial Agricultural Center Seed cooperatives and area coverage - Albay Seeds (Districts 1-3): 60%

- Bicol Seeds (Ligao): 20% - Libon Seeds: 20%

Source: Reports and interviews with staff of the Office of the Provincial Agriculturist of Albay and SeedNet.

C. Quezon

The province of Quezon with a total physical area of 870,660 ha is composed of 40

municipalities, one city and 1,242 barangays. The total physical area for palay

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production in Quezon is 33,974 ha. Fifty one percent of the palay area is irrigated,

48% is rainfed and a mere one percent is upland (Table 8 ). Eighty percent of the total

area is planted to home-saved or exchange seeds. There are 19,212 rice farmers as of

2009 with an average rice farm of .93 ha.

The most preferred rice variety by farmers in Quezon is Rc 18 due to its good eating

quality and high price of rice. The other varieties preferred by farmers are Rc 128, Rc

82, and IR 64. The most common varieties available, however , are NSIC Rc 150,

NSIC Rc 160 and NSIC Rc 168.

Quezon imports CS from the provinces of Laguna and Isabela. Before, 80% of seeds

come from Laguna and 20% from Isabela. In 2010, 90% of seeds come from Isabela

and 10 % come from local production. The seeds procured by the province depend on

the available varieties from the source and thus, the varieties that the farmers have to

plant may not be what they prefer.

The province of Quezon has five seed inspectors. There are two seed inspectors in the

province and another three national deputized seed inspectors ( retained personnel of

DA in th province). Based on the perspective of the key informant, there should be at

least two seed inpectors per district of the province. Quezon has 4 districts; hence,

there should be three more seed inspectors.

The active seed growers in Quezon have grown in number from 18 to more than 30

due to the existence of government program on seeds. Currently, there is no seed

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grower association in the province but they are planning to have one and have it

registered at the SEC.

Table 8. Situationer on rice farms and seed production, Quezon Province. Item Details

Percent Total rice production area (ha)a 30,215 ha Irrigated (as of 2009) 17,617 58.3% Rainfed (as of 2009) 11,788 39.0% Upland (as of 2009) 810 2.7% Total no. of farmersa 28,022 Irrigated (as of 2009) 14,381 51.3% Rainfed (as of 2009) 12,779 45.6% Upland (as of 2009) 862 3.1% Average farm size (ha)a 1.041 Irrigated (as of 2009) 1.225 - Rainfed (as of 2009) 0.922 - Upland (as of 2009) 0.939 - Total no. of seed inspectorsa 5 (5% of 94 SI

deputized by DA for Region IV)

-

No. of DA-RFU-IVA deputized seed inspectors 3 - No. of Provincial LGU deputized seed inspectors 2 - Accredited area in ha for seed production (as of Feb. 2011)a 46 - Planting target under RasSFIPa As of Dec 2010 As of Jan 2011 Planting Target (ha) 7,573 1,364 No. of CS distributed (bags) 3,281 904 No. of beneficiaries 2,675 499 No. of seed growers (as of Feb 2011)a - 30 No. of accredited inbred rice seed growers (Jan.-July 2010)c 13 No. of accredited hybrid rice seed growers (Jan.-July 2010)c 0 No. of accredited inbred rice seed growers (2007-2009)c 21 Area planted to FS (Sept.16,2009-March 15, 2010)c 21.9 ha Area planted to RS (Sept .16,2009-March 15, 2010)c 20.9 ha No. of bags of RS that passed seed certification (Jan.1, 2010-Aug. 4, 2010)c

398 bags of inbred

No. of bags of CS that passed seed certification (Jan.1, 2010-Aug. 4, 2010)c

1,157 bags of inbred

a Source: Office of Provincial Agriculturist in Quezon (KI and OPAg Database Report) b Source: KI during seed growers meeting in Talipan, Pagbilao, Quezon on Feb. 3, 2011 c Source: NSQCS Updates on Seed Certification and Production Report

D. Oriental Mindoro

Oriental Mindoro is one of the province of MIMAROPA or Region 4B.Specifically,

Naujan and Calapan were the municipalities identified by the Provincial Agriculture

Office to be the study areas. Of the province’s fourteen municipalities, Naujan and

Calapan City have the largest irrigated areas of 10,588 and 7,489 ha, respectively.

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The average yields were 3.62 and 3.63 mt/ha, respectively. The palay seed production

in Oriental Mindoro may be considered to be surplus. This excess production was

absorbed by NFA-Mindoro in 2009.

The most preferred rice variety by farmers in Oriental Mindoro is Rc 18. Others are

NSIC 160, Rc 14, Rc 128, and NSIC Rc 130.

The Office of the Provincial Agriculture of Oriental Mindoro used to give targets on

the volume of production of palay. The target depends on the irrigated area in the

province, which is about 56,000 ha. Oriental Mindoro is more than self-sufficient in

palay seeds. In the October-November 2010 harvest, the target area was 30,127 ha.

However, production increased to 40,000 bags. Not all of the produced certified seeds

were procured which resulted to surplus in seeds. Seed growers opted to either sell the

CS produced to the NFA at PhP17.40/kg or have the CS milled and then sold as

milled rice.

The cost of producing CS is about PhP41,100 per ha per cropping(Table 6). Seed

growers produce CS for two cropping seasons per year, one for dry season and

another during wet season. If net income will be computed per month of a seed

grower in producing CS is about PhP11,150/ha. If a seed grower has two hectares for

CS production, then he/she earns about PhP22,300/mo.

ISSUES/PROBLEMS CONFRONTING THE PALAY SEED SYSTEM

a. Seed Subsidy

With the change in leadership in the Department of Agriculture, the rice seed subsidy

was phased out in early 2011. They justify the removal of subsidy by giving priority

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to infrastructure projects such as irrigation and farm to market roads. Key informants

in the study areas cited the issuance of Memo No. 20 series 2011 entitled ‘Guidelines

on the implementation of community-based Seed Banks(CSBs). Without seed

subsidy, certified seed production would not be sustainable because sale of seeds

highly depends on government procurement. In Albay, for example, seed growers

estimated that without subsidy, only 20% will use certified seeds. If sales to the

government would be reduced, seed growers have to look for other markets and

therefore, may need to strengthen their marketing capacity.

Seed growers also lamented the additional cost in the procurement of foundation and

registered seeds. In Mindoro, seed growers had to purchase outside the province, e.g.

from PhilRice Maligaya in Nueva Ecija. Other problems include the unavailability of

preferred varieties and delayed delivery of registered seeds which also delayed

production of seeds for the next planting season. In Quezon, after a typhoon or

flooding, the seeds available to seed growers were not the ones farmers preferred to

plant.

In addition, seed growers had to contend with the delayed payment from the DA, their

major buyer. For instance, only six out of 15 members of Bicol Seeds were currently

planting because collection takes six months to one year.

b. Seed Flow

Based on interviews, the SeedNet organized by PhilRice became inactive in 2010 thus

changes in the flow of palay seeds caused confusion among seed growers. Key

informants reported that before, only SeedNet members can get breeder and

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foundation seeds from PhilRice. At present, any seed grower can buy foundation seed

directly from PhilRice . In such situation, SeedNet and the seed growers could no

longer keep tract of how many seed growers directly purchased foundation seed from

PhilRice. This uncontrolled purchase of foundation seed from PhilRice makes it

difficult for SeedNet to estimate the registered and certified seed requirements in the

area. SeedNet has to plant two cropping seasons ahead of farmers since it has to plat

foundation seed to produce registered and then certified seed. One SeedNet member

lost earnings due to surplus in its registered seed production which was eventually

sold as milled rice.

As reported by PAC in Albay, PhilRice used to supply seeds for free but at present,

PAC has to go to PhilRice and buy seeds. Before, SeedNet had meetings with

PhilRice one season ahead to make plans and SeedNet can request preferred varieties

in the area. As of 2010, this is no longer done.

c. Seed Inspection and Quality Testing

In Region 5, there is only one satellite office of the National Seed Quality Control

Services (NSQCS) (located in Pili, Camarines Sur). Thus key informants claimed that

the establishment of a satellite office in other areas would facilitate the seed

certification process. However, this would require availability of manpower which is

currently already limited due to retirement of seed inspectors. At present, retooling of

seed inspectors is undertaken to improve the certification process.

In Quezon, there is a proposal to establish a seed laboratory in Quezon National

Agricultural School(QNAS) so that seed testing will be accessible to seed growers.

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There is also a plan to establish multi-purpose drying pavement in strategic areas in

Quezon.

In Oriental Mindoro, the problem of NSQCS (located in Barcenaga) is the delayed

release of MOOE every year. Another problem is the delayed release of tags during

peak season.

In general, seed inspectors lamented their limited travel allowance which hindered

their mobility. In Quezon, for example, the ceiling expense was PhP 1000/month, not

enough considering the number and distance of the seed farms they have to monitor.

d. Hybrid Rice Program

The government program on hybrid rice in Albay and Camarines Sur failed due to the

following reasons: unsustained seed supply; high cost of hybrid seeds relative to

certified seeds; need to buy new seeds every cropping season; susceptibility to

diseases and insect pests; and difficulty in planting. Key informants also reported that

hybrid rice seed production is difficult. Additional information and demo farms will

help address these constraints.

e. Seed Production

According to seed growers, the common problems in seed production in the study

areas included extreme weather disturbances such as typhoon, flooding and prolonged

drought, diseases (tungro and bacterial blight) and pests such as black bug, rats,

golden snails and birds. In 2010, more than 1,000 ha in Quezon were infested with

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rice black bug. Lack of irrigation water in Quezon also constrained seed growers from

planting in advance. In Mindoro other problems included zinc deficiency and saline

intrusion in some areas.

f. Marketing

Seed growers expressed their major concern when there is delayed production of

seeds, marketing becomes a problem. Related to this is sustaining the usage or

adoption of certified seeds especially when there is surplus production. For example,

the surplus in palay seed production in Oriental Mindoro poses the need for additional

market, either within the province or neighboring regions. The demand for certified

seeds is also hampered by the availability of varieties preferred by the farmers in the

area. There is a need to match the seeds preferred by farmers with the seeds produced

by growers.

Marketing constraints also included delayed payment from RFUs and LGUs. This was

experienced by Oriental Mindoro in exporting to other provinces. In Quezon, the

processing of payments was delayed when there were incomplete ducuments or

problems in the master list.

SUMMARY AND RECOMMENDATIONS

Summary

The rice seed system in the provinces of Camarines Sur, Albay, Quezon and Oriental

Mindoro is a combination of formal and informal system with farmers’ sources of

26

seeds including both the government and saved from previous harvest or exchanged

with other farmers.

In the formal seed system, PhilRice plays a major role in production and distribution

of breeder, foundation and registered seeds. The SeedNet, when it was still

operational, acts as a conduit in the seedflow in order to ensure adequate supervision

in seed production. To ensure seed quality standards, seed growers have to undergo

rigid accreditation procedures and the seeds produced have to undergo several testing

procedures before commercial release in order to maintain quality. However, absence

of seed testing centers in some areas and low travel allowances of seed inspectors

constrained seed quality control activities.

Projection of seed requirement in the provinces focuses mainly on certified seeds,

thus does not target 100% of the total rice physical area since many farmers still

depend on home-saved seeds. Given the accredited area for seed production, the

provinces in general, are more than self-sufficient in the supply of certified seeds.

One major concern of seed growers is the removal of seed subsidy because their sale

of seed is highly dependent on government procurement.

The impact of the community based seed bank to the formal seed system remains to

be seen since CSBs is not yet fully implemented in many parts of Southern Tagalog

and Bicol regions.

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Recommendations

To ensure stability in rice seed system and rice production implies not only seed

sufficiency but also seed security. Seed security is an important issue in view of the

frequency of natural calamities like typhoons, floods, drought, etc. There should be

mechanism that can sustain farmers’ access to seeds of the right varieties – available

at the appropriate planting time, at an affordable price, and of good quality in both

normal and abnormal situations(Elazegui, et. al. 2012).

Considering the advantages, e.g., higher yield of certified seeds compared to saved

seeds, there must be vigorous information, education and communication (IEC)

campaign to increase adoption, and therefore, market of certified seeds. In the case of

hybrid seed, majority of hybrid companies operating in the country would like to

compete openly in the market.

To facilitate seed testing and certification and reduce travel time and costs, NSQCS

laboratory or satellite office should be put up in different strategic locations. Travel

allowance of seed inspectors should be appropriately based on location of farms

inspected.

The concern for single data bank system was raised during several fora on seed

system. It was suggested that a single authoritative management information system

(MIS) that are available to the stakeholders must be put in place. At the round table

discussion, PhilRice and NSQCS were eager to provide leadership in setting common

28

MIS for the rice seed sector. The operational procedure to implement this suggestion

should be discussed as soon as possible.

Some NSQCS laboratories at the regional level are far from the area of accredited

seed growers. They usually send their sample seed lots for testing at these laboratories

incurring high shipping/transportation costs. During peak rice harvest time, the

laboratories would be swamped with a lot of sample necessitating hiring contractual

personnel to augment the regular staff. Given that the SUCs are present in each

province, enlisting their support by establishing mobile laboratories will help ease the

burden at the NSQCS laboratories. Such diagnostic laboratories would strengthen

capacities not only of SUCs but the DA as well as it would be the first responders to

agricultural situations in the province. With the removal of the seed subsidy in 2011,

the pressure on the NSQCS laboratories will be significantly reduced.

The Rice Varietal Improvement Program of UPLB is involved in both the formal and

informal seed systems. Promising lines developed by our group are entered in the

National Cooperative Trials and if found promising they are released through the

National Seed Industry Council. In collaboration with Ugnayan sa Pahinungod,

CPAf, and other non-government organizations, our group have been supporting also

the informal seed system since early 1980s. Many of our faculty members and

researchers were involved as technical adviser/consultants of many NGOs that were

active in the early 1980s and 1990s(ie. MASIPAG and SEARICE). In one of our

participatory rainfed rice breeding project in Quezon in 2009, we provided our farmer

collaborators more than 50 promising entries from our rainfed rice breeding project

and after two cropping seasons, farmers in San Antonio, Quezon were able to select

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two lines that were later on recommended by the NSIC as rainfed lowland varieties.

In 2012, we also provided 10 or more promising rainfed lines to our farmer

cooperators in San Antonio and San Juan Batangas and two barangays in Lopez

Quezon. We encourage our cooperators to select from these promising lines and use

the selected lines to plant the following cropping season in their farms. They can also

seed increase the selected lines and share it to other farmers in the area through the so

called informal or community seed system-i.e. farmer to farmer seed exchange and

other means used in the community.

The establishment of Community Based Seed Banks in the later part of 2011 by the

Department of Agriculture is a welcome development for the informal seed system..

This may potentially increase and promote farmers access to quality seeds especially

in marginal areas like rainfed and upland areas. However, there is a need to

fastract/hasten the implementation of the CSBs in Southern Tagalog, Bicol Region

and the whole country. In addition, there is a need to strengthen the partnership

between government institutions like DA, PhilRice, SUCs and the NGOs, IAs, and

other groups that are willing to participate in this activities to make this initiative

sustainable in the future.

I agree with most of the suggestions of Mr. Mario Movillon, the discussant/reactor

during the Professorial Lecture. He proposed the 3I’s as a way to contribute to the

strengthening of the palay seed system not only in the study areas but possibly nation-

wide as well:

I. Timely INTERVENTION, from government agencies/stakeholders

concerned :

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1.The Department of Agriculture, as lead agency together with its line

agencies should make a comprehensive and serious inter-agency

undertakings to narrow the gap of the recurring mismatch issue of timely

seed availability, production and distribution system;

a. Make a comprehensive 2-3 year projection regularly updated in

anticipated seasonal period before the onset of every cropping season

including buffer stocking of appropriate varieties to various regions to

respond immediately to foreseen/unforeseen calamities.

b. Push for strong complementation and harmonization of both formal

and informal seed system by tapping the private sector.

2. Re-activation and support the national and regional seed network, including

strengthening RIARCS to proactively identify and source out locally

adapted varieties every year.

3. Revision of the current price of tagged of seeds into a more ‘democratized

pricing’ so that most farmers can afford and avail them. This will greatly

depend on improved demand-supply system.

II. Appropriate INTEGRATION

1. Lobby and push for a more unified and fully harmonized laws governing

the seed systems, including harmonization of their A.O.s, M.O.s, and

IRRs. A well-placed, standardized and unified law when implemented

eliminates many problems and confusions, and promote consistency of

action among stakeholders.

2. BPI and NSQCS together with technically capable SUCs, to share/expand

their roles in seed certification that is more systematic and farmer friendly.

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NSQCS to create and develop a more client-sensitive, time sensitive and

state of the art seed certification protocols and systems.

3. DTI and DA to provide a joint and more comprehensive, down to earth

seed marketing support system to the seed growers and farmers. Many of

the returning OFWs may be encouraged to invest in the seed system.

III. Creative INNOVATION

DA-PhilRice-UPLB , together with NIA-NFA-DTI-NEDA, to jointly think,

review, plan, develop, what works best (eliminate those that are not working)

in the current problematic seed system, into a genuinely reliable system that is

more attuned to the changing environment-climate change, global trade,

political, etc.

1. Just in time (JIT) seed production, distribution and seed delivery system

should not be a monopoly of the private sector or private companies.

2. Science and technology, especially ICT, has made significant gains in

recent years, that can be applied in seed systems, including modernizing

seed value chain and seed logistics for agriculture. Many developed

countries are doing these already e.g. seed auctions, seed production

biddings, crop insurance forecast applications, seed supply forecast , and

seed processing and distribution systems. I fully agree with Mr. Movillon

that our country is not lacking in brain power to do these 3 and perhaps

more.

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Literature Cited/References

1. Amper, Z.V., P.C. Sta Cruz, J.N.R. Medina, R.D. Gajo, R.P. Tiama, S.S. Tamesis, L.A. Bareza, R.M. Decena, R.Z. Morales, and A.G.C. Banganan. 2012. Creating demand for certified seeds in Quezon. In: Rola, A.C., J.E. Hernandez, J.R. Medina, and L.R.I. Velasco(eds) Partnership for food security. DA-BAR, Diliman, Quezon City and UPLB, College, Laguna. Philippines. pp.329-335.

2. Cromwell, E. and S. Wiggens. 1993. Sowing Beyond the State: NGOs and seed

supply in developing countries. Overseas Development Institute.143pp. 3. Egle, R.B., C. S. Benoya, C. N. Cervantes, D.J. Lalican, J.E. Hernandez and A.G.C.

Bangana. 2012. Creating demand for certified seeds in Camarines Sur. In: Rola, A.C., J.E. Hernandez, J.R. Medina, and L.R.I. Velasco(eds) Partnership for food security. DA-BAR, Diliman, Quezon City and UPLB, College, Laguna. Philippines. pp.303-320.

4. Elazegue, D.D., A.R. Chupungco, E.E. Dumayas, M.R. Nguyen, J.E. Hernandez,

and M.J.M. Rabang.2012.Improving palay seed system in Southern Tagalog and Bicol Regions In: Rola, A.C and M.M. Paunlagui (Eds).Policy perspective for food self-sufficiency at the regional level: Southern Tagalog and Bicol, Philippines. DA-BAR,Diliman, Quezon City and UPLB, College, Laguna, Philippines. pp. 41-57.

5. FAO, 1997. Report of World Food Summit. November 13-17, 1996. FAO, Rome,

Italy. 6. Hernandez, J.E., N.V. Querijero, C. Jimena and S. Bon. 2010. Quick Response

Study on the Seed Component of the DA-FIELDS Program. Presented in the roundtable discussion on Palay Seed System, BPI, Quezon City. August 10, 2011, CRDES for Food Security Program, CPAf, UPLB.

7, J.E. Hernandez, N.J.V. Querejero, C.E.G. Jimena, and S. G. Bon. 2012.

Institutional partnership and supply issues for seeds. In: Rola, A.C., J.E. Hernandez, J.R. Medina, and L.R.I. Velasco(eds) Partnership for food security. DA-BAR, Diliman, Quezon City and UPLB, College, Laguna. Philippines. pp.143- 156.

8. Lalican, D.J. A.P. Payonga, J.P. Tagarino, R.A. Limos, F.S. Serrano, E.S. de la Torre, E.C. Florida, A.R. Odsinada, A.L. Orosco, O.C. Oco, R.dT. Baconguis, and A.G.C. Bangonan. 2012. In: Rola, A.C., J.E. Hernandez, J.R. Medina, and L.R.I. Velasco(eds) Partnership for food security. DA-BAR, Diliman, Quezon City and UPLB, College, Laguna. Philippines. pp.295-301.

9. Marzo, Ma.L.O., S.G. Bon, T.S. Guian, E.C. Gatpandan, R.E. Enano, J.E.

Hernandez, J.R. Medina, and A.G.C. Banganan. 2012. Creating demand for certified seeds in Palawan. In: Rola, A.C., J.E. Hernandez, J.R. Medina, and L.R.I. Velasco(eds) Partnership for food security. DA-BAR, Diliman, Quezon City and UPLB, College, Laguna. Philippines. pp.321-328.

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10. Masajo, T.M., J.C. de Leon, and J.E.Hernandez. 2004. Breeding: variety apostol to hybrid mestizo. In: Vergara, B.S. ed. Philippine Rice Centennial : Research and Development. Munoz, Nueva Ecija. Philippine Rice Research Institute. pp 107-166.

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1996. The National Seed Production Network. In: The Philippine Seed Industry and the National Seed Production Network. A primer. PhilRice 32 pp.

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Nutrition. In: Securing Rice, Reducing Poverty: Challenges and Policy Directions. A.M. Balisacan, L.S. Sebastian and Associates. Published by SEARCA, PhilRice and DA-BAR, pp. 153-170.

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Philippine Rice Industry and the National Rice Seed Production Network, Rice Technology Bulletin. No. 6. Department of Agriculture-Philippine Rice Research Institute.

Acknowledgement

I would like to thank the following faculty and researchers for allowing me to use

our data from the CRDES program:

Dr. Agnes C. Rola, Program Leader, CRDES, CPAF

Dr. Merlyne M. Paunlagui, Co-Program Leader, CPAF

Dr. Jose R. Medina, Ret Professor, CPC, CA

Prof. Nelson Jose Vincent B. Querijero

Ms. Dulce D. Elazegui,CPAF

Ms. Agnes R. Chupungco,CPAF

Ms. Elvira E. Dumayas, CPAF

Dr. Miriam R. Nguyen, CPAF

Ms. Mary Jane M. Rabang, CPAF

Mr. Sancho Bon, CSC, CA

Mr. Danilo J. Lalican, CSC, CA

Ms. Carla Edith G. Jimena, CHE

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