Policies for the Future of Fisheries and Aquaculture in Peru

Key findings and recommendations

Overview of fisheries and aquaculture policies in Peru

This section summarises the key findings of the report on Peru’s fisheries and aquaculture policies. In the analysis throughout this report, the data are compared to the OECD membership. Comparisons are made on the basis of the most recent comparable data which are from 2020‑22 depending on the dataset.

Peru is one of the largest capture fisheries producers globally

In 2022, Peru produced 5.5 million tonnes (Mt) of fish, valued at USD 2 978 million, combining marine capture and aquaculture production. This represents 3% of global total fisheries and aquaculture production. Total fish production increased by 12% in volume but decreased by 18% in value between 2012 and 2022.

Fish production in Peru is largely made up of marine landings from capture fisheries taking place along the Pacific coast, which represent 97.4% in volume and 84.8% in value. Aquaculture is an expanding sector and represents 2.5% of volume and 15% in value and takes place mostly in inland areas. In 2022, Peru was the fourth-largest producer of marine capture fisheries globally, representing 5.8% of all global marine capture production. This would have made Peru the largest marine capture producer among OECD Members in terms of landings volume and the sixth largest producer by value.

Peru's fishing sector relies heavily on the Peruvian anchoveta (Engraulis ringens - hereafter “anchoveta”), which accounted for 77% of the country's total fish landings (by volume) and is the basis of its fishmeal and fish oil industry. This was followed by jumbo flying squid (Dosidicus gigas) with a share of 8.5% and Chilean jack mackerel (Trachurus murphyi) with a share of 3.1% (Table 1).

Table 1. Landings of main species 2022 (tonnes)

Species	Landings 2022 (tonnes)	Share of total landings (%)
Anchoveta (Engraulis ringens)	4 118 122	76.7
Jumbo flying squid (Dosidicus gigas)	457 364	8.5
Chilean jack mackerel (Trachurus murphyi)	167 297	3.1
Pacific chub mackerel (Scomber japonicus)	90 515	1.6
Eastern Pacific bonito (Sarda chiliensis)	87 582	1.6

Note: Main five species of marine landings.

Sources: FAO (2023), Fishery and Aquaculture Statistics. Global capture production 1950‑2020 (FishStatJ): https://www.fao.org/fishery/en/statistics/software/fishstatj, OECD (2024), Marine landings (OECD.Stat), http://stats.oecd.org/wbos/default.aspx?datasetcode=FISH_LAND.

In 2022, Peru’s marine fishing fleet comprised a total of 18 163 vessels. The majority (14 142, representing 78% of the fleet) were of less than 12 metres (m) in length over all (LOA). The total fleet has grown significantly over the last decade, with an increase of 152% between 2012 when 7 192 vessels were registered and 2022 when 18 163 vessels were registered. Vessels of less than 12 m LOA was the category with the largest increase (175%), followed by vessels in the 12‑24 m category (124%). Notably, a large proportion of this “growth” is caused by the formalisation of informal fishing vessels and does not correspond to an actual increase in the number of vessels.

Aquaculture is a small share of production but a key area for future growth

Total aquaculture production in Peru was 140 930 t in 2022, accounting for a very small share of domestic fish production (2.6%), but it has increased 95% since 2012 when it was 72 292 t. However, in value terms, aquaculture production was USD 453 million in 2022, decreasing 4% from USD 472 million in 2012. On average, aquaculture production in OECD Member countries grew more slowly in volume (by 30%) but increased significantly in value (by 47%) over the same period. Peru would have been the 14th largest aquaculture producer among OECD Member countries by volume and the 16th by value in 2022. It was then the eighth-largest aquaculture producer by volume in the Americas, accounting for 3.3% of total production in the same year (FAO, 2022[1]).

Four species account for 97% Peruvian aquaculture production by volume: rainbow trout (Oncorhynchus mykiss), which accounts for 44% of total production; whiteleg shrimp (Litopenaeus vannamei), which accounts for 32%; scallops (Argopecten purpuratus also known as fan shell), accounting for 19%; and tilapia (Oreochromis spp.), accounting for around 2%. Aquaculture activity in 2022 was concentrated in the regions of Puno (inland), Tumbes (marine) and Piura (marine), which together accounted for 75% of production.

In 2022, a total of 13 048 aquaculture rights were granted in Peru, ranging from small-scale to large aquaculture producers. Generally, inland aquaculture involves a higher number of small producers, with 10 191 producers covering an area of 6 278 hectares (ha). Marine aquaculture involves fewer (503) but larger (24 434 ha) producers.

Peru’s aquaculture sector has significant potential due to the country’s vast coastline, extensive freshwater resources and rich biodiversity. Given the potential of aquaculture as a source of income, employment and nutritious food, it was declared a sector of national interest in 2015 (see the discussion below on aquaculture policies).

Trade in fish products is growing and half of it is trade in anchoveta-based fishmeal and fish oil

Peru is a net exporter of fish products. Total exports in 2022 reached USD 3 947 million and a volume of 1.8 Mt. Exports of fish products have grown steadily in value, increasing by 18.6% between 2012 and 2022. A large share of the export revenue comes from the sale of fishmeal (44% of total exports by value) and fish oil (5.4% of exports by value), hence indirectly from the anchoveta fishery. Exports of fisheries products for direct human consumption represented 36% of total value, with jumbo flying squid being the most important product, representing 15% of total value of exports. This was followed by mahi‑mahi and flying fish. Under the direct human consumption category, exports of frozen fish products represented over two-thirds of exports, led by jumbo flying squid and shrimp products, followed by canned products, which represent a growing share of total exports.

Fish production is an important employer, but as with other sectors of the economy informality remains an issue

In 2022, 128 011 people were employed in the fisheries and aquaculture sector in Peru. Fishing activities, both marine and inland capture fishing, had the largest share of employment, with 78 775 fishers (61.5%), followed by processing (29.6%) with 37 970 jobs and aquaculture (8.8%) with 11 266. According to a survey of artisanal marine capture fisheries, over 95% of total employment in Peru in fishing activities in 2022 was in the artisanal sector (IMARPE, 2024[2]). Informality in Peru is prevalent across all economic sectors, with an overall estimated rate of 77% in 2021, but it is particularly high in fishing (with 90% of informality) and agriculture (with over 95%) (OECD, 2023[3]).

The fisheries governance system in Peru is driven by the Ministry of Production and the General Fisheries Law

The Ministry of Production (hereafter PRODUCE) is the competent institution for fisheries and aquaculture policies in Peru. It has exclusive competence over capture fisheries management and medium- and large-scale aquaculture. PRODUCE is supported by one public executing agency, the National Fund for Fishing Development, and three specialised independent technical agencies, the Institute of the Sea of Peru (IMARPE), the National Fisheries Health Agency and the Technological Institute of Production.

In Peru, the General Fisheries Law (GFL) and its Regulations (D.S. N° 012‑2001‑PE) set the overarching legal frameworks for fisheries at the national level. The GFL has been modified on three occasions, in 2008, 2018 and most recently 2023, to recognise traditional ancestral fishing and traditional artisanal fishing and to promote their preservation within the first five nautical miles. The GFL is supported by fisheries management regulations (ROPs, Reglamentos de Ordenamiento Pesquero), specific regulations for individual species, groups of species of commercial interest or specific regions.

Table 2. Institutional co-ordination and functions related to the Ministry of Fisheries

Institutions	Functions
Education Ministry	Responsible for the consumer education policy to increase fishery product consumption per capita.
Ministry of Defense - General Directorate of the Navy Captaincy and Coast Guard.	Responsible for registration, inspection, and control of fishers and fishing vessels, and training personnel onboard a ship. Authorize vessel owners with valid permits and listed in the authorised vessel registry to set sail. The Ministry is responsible for the control and protection of marine resources, in addition to guarding the safety of human life at sea and protecting the marine environment.
Ministry of Agriculture	Responsible for authorising the use of water bodies for aquaculture and fishing activities and for flora and fauna conservation.
Ministry of Labor and Social Promotion	Responsible for the fishermen's labor regime (coordinated with the Ministry of Defense).
Ministry of interior	Contributes to the control and protection of marine resources, subject to management measures established by Ministry of Production, in areas where PRODUCE does not have available means to carry out such functions.
Ministry of Foreign Affairs	Responsible for coordinating fisheries agreements and conventions with international, multinational, and intergovernmental organisations and agencies.
Ministries, Municipalities and other competent agencies	Prevention and control of environmental pollution produced by fishing activities.

Note: Information from the General Fisheries Law – Title X (Government of Peru, 1992[4]) and the General regulation of the Fisheries Law (Government of Peru, 2001[5]).

A number of other national institutions also participate in the governance of the sector, through horizontal co-ordination mechanisms (Table 2). The institutional mechanisms in place seem to allow for effective co-ordination, consultation and decision making on fisheries matters. One of the main horizontal co-ordination mechanisms between PRODUCE and other national institutions is the Co-ordinating Committee of Deputy Ministers under the Council of Ministers, which enhances dialogue, facilitates decision making and allows for the collective creation of draft multisectoral legislation. Similarly, PRODUCE collaborates with other institutions looking to collectively deliver on effective fisheries policy implementation, bringing coherence, predictability and legitimacy to the sectoral policies. Notably, PRODUCE has legal instruments that put in place mechanisms for information sharing and periodic reporting within relevant institutions.

Regional governments are partially responsible for policy implementation but they face challenges due to capacity constraints

Regional governments perform tasks related to the implementation of fisheries and aquaculture policies, including the granting of fishing authorisations and fishing permits for artisanal fisheries and subsistence fishing, and oversight and monitoring of fishing activities, including data collection. Regional governments, however, face important challenges, mainly related to the lack of financial and human resources, which hampers their ability to effectively complete the tasks under their responsibility. Notably, they have limited administrative capacity, as they lack specialised human resources with technical knowledge on fisheries regulations and management. This leads to weak implementation of the legal framework (Paredes et al., 2024[6]; World Bank, 2021[7]). Notably, there are significant gaps in the reporting to PRODUCE and in the use of technological tools for monitoring, control and surveillance (MCS) activities.

There are effective mechanisms for public participation in the policy-making process but challenges for engagement in remote regions

Peru has a well-developed legal framework to regulate and encourage stakeholder participation in the public administration, reflecting the alignment of the country’s regulatory policy framework with OECD best policies and practices in the matter. Peru regulates citizen participation mechanisms through the Law on Transparency and Access to Public Information (Law No. 27806 of 2003) and its regulations, including the recently updated Decree 009‑2024‑JUS which defines the guidelines relating to the publicity, publication of regulatory projects and dissemination of legal norms of a general nature.

Under “sectoral roundtables”, a mechanism for public-private dialogue created in 2015, the main state officials from the sectors meet periodically with the main representatives of the private sector, accredited by their respective producers’ organisations. These roundtables, which are under the co‑ordination of the Ministry of Economy and Finance, aim to increase productivity, address difficulties and bottlenecks, and discuss proposed regulations for the sectors. There are dedicated roundtables for the fisheries and aquaculture sectors, where producers (industrial and artisanal), academic institutions and different competent government institutions meet, including PRODUCE.

The vast majority of Peru’s capture fisheries production comes from stocks that are healthy and productive

Peru regularly assesses 30 fish stocks, of which the vast majority (97%) are above limits for biological sustainability and at levels that allow for productivity to be maximised (73%). In particular, the top five species by volume, which account for 91.5% of landings, are all sustainable and at levels that allow for maximising productivity.

This is well above the average situation seen across the OECD (64% of healthy stocks and 32% of productive stocks). Of the 30 assessed stocks, nine are considered commercially important enough to be covered by ROPs (see below for more information), and have set management targets. All of these nine stocks are healthy and at levels that allow for maximising productivity (e.g. maximum sustainable yield [MSY]). Of the 21 assessed stocks that are not covered by ROPs, seven are not meeting productivity targets. Based on the available evidence, Peruvian fisheries resources are overall healthier than the OECD average.

Peru assesses most fish stocks annually and the assessments are conducted by IMARPE. These assessments determine the exploitation status of the stocks based on fishing activity (catch per unit of effort and total catch per fleet), biological performance indicators (biomass and spawning biomass) and environmental variability. Fisheries can be classified into six different categories, which defines the management strategy that can be applied in broad terms. For example, the majority (76%) of assessed fish stocks are classified as fully exploited, thus no increase in capacity is permitted in these fisheries.

Peru implements a dynamic and adaptive management system for anchoveta and individual vessel quotas enhance the economic efficiency of the fishery

Stocks of the Peruvian anchoveta have been subject to total allowable catch limits (TACs) since the GFL was passed in 1992. Since 2009, the TAC has been further subdivided into individual vessel quotas (Decree No. 1084). Two equations are used for the allocation of initial quota shares to vessels, one which covers the steel-hulled industrial fleet and the other the small-scale wooden-hulled, so-called “Viking fleet”. There is limited transferability of quotas between vessels under the individual vessel quotas system. As a result, their introduction has led to some fleet consolidation, extended fishing seasons (slowing of “race to fish”), an increase in the quality of landed fish and correspondingly an increase in ex-vessel prices for anchoveta, all of which can be considered positive impacts.

The management of the north-central anchoveta stock, which is responsible for ~90% of anchoveta landings, is based on two core principles: first, that the biomass of the stock must remain over 5 Mt and second, that the exploitation rate should remain below 0.35.1 In principle, the fishing seasons in the north-central stock run from April to June and November to January, with the closures during the main spawning seasons. However, the sensitivity of the stock to both fishing pressure and environmental variables means an adaptive management system that responds to changes in stock conditions as they occur is required to prevent overexploitation. To address this issue, Peru has implemented a near real-time monitoring system that is used to inform decisions around TAC volumes, and the dynamic temporal and spatial closures of the fishing season. This system builds on data from several sources to estimate the status of the stock, including hydroacoustic surveys carried out by IMARPE, regular at-sea research surveys, remote sensing data and other data directly from the fishers.

Many artisanal fisheries are subject to science-based management but informal fishing, and the illegal construction and alteration of fishing vessels, undermines its effectiveness

The management of Peru’s fisheries resources other than anchoveta aims to maintain stocks at levels that allow for production to be maximised within sustainability constraints, i.e. MSY. In general, fisheries are managed using a mix of input and output controls set by PRODUCE though the ROPs. There are currently 13 active ROPs:

• Eight ROPs focus on individual commercial species: Tuna and tuna-like species, anchoveta for direct human consumption (Engraulis ringens and Anchoa nasus), jack mackerel (Trachurus murphy), chub mackerel (Scomber japonicus peruanus), Peruvian hake (Merluccius gayi), punctuated snake-eel (Ophichthus remiger), jumbo flying squid (Dosidicus gigas), mahi-mahi (Coryphaena hippurus) and deep-sea cod (Dissostichus eleginoides).

• The remaining five ROPs are spatially designed and/or encompass multi-species fisheries: Peruvian Amazon fishes, Tumbes Region, Lake Titicaca Basin, macroalgae and benthic marine invertebrates.

However, informal fishing, driven by the illegal construction and alteration of fishing vessels undermines management in some artisanal fisheries. The uncontrolled development of the artisanal fishing fleet has led to an overcapitalisation in some areas, leading to economic inefficiency and reduced profitability in the sector, potentially undermining the welfare of the fishers themselves (PRODUCE, 2024[8]). Furthermore, the existence of a significant informal fleet can undermine fisheries management and stock assessments as it means the actual fishing effort may be higher than observed. This not only places pressure on the resources but also undermines the assumptions that underpin stock assessment and science-based management. As these vessels are not registered in PRODUCE’s official records, they are not subject to same oversight as legitimate fishers, leading to unfair competition and reduced opportunity, which undermine the social and economic sustainability of the sector.

Government support to fisheries in Peru is relatively high in absolute terms but less intense than the OECD average

Peru provided an average of USD 97 million per year in support of fisheries over the 2020‑2022 period. This would have made Peru the tenth-largest provider of fisheries support among OECD Member countries over the same period. The intensity of fisheries support in Peru, however, is significantly lower than the average OECD intensity of support relative to the value of landings, employment and fleet size. It was relatively low in terms of the value of landings, at 4% of the annual value of landings (2020‑2022 average), compared to 15.2% across the OECD over the same period. Relative to employment, Peru’s support was USD 1 215 per fisher, which is less than a quarter of the OECD average of USD 5 722 per fisher. Relative to fleet capacity, Peru provided 206 USD/GT (gross tonnage), less than the OECD average of 703 USD/GT (Table 3).

Table 3. Support to the fisheries sector (annual average over 2020‑22)

	FSE as a percentage of landings value	USD per fisher	USD per gross tonnage	Main support type
OECD countries	15.2%	5 722	703	MMCS
Peru	4%	1 215	206	MMCS

Source: OECD data: OECD (2024), Fisheries Support Estimate (FSE) https://www.oecd.org/en/topics/fisheries-subsidies.html. Peru’s data was provided by the Ministry of Production of Peru.

Support to management, monitoring control and surveillance is the main category of support and has grown significantly since 2012

For the period 2020‑2022, the main types of support to the fisheries sector in Peru were spending on management, monitoring, control and surveillance (MMCS) (accounting for 43% of all support), followed by income support (33%), and support to infrastructure (16%). Peru did not report support to fuel, either specific or non-specific. The composition of support in Peru is in fact like the policy mix observed at the level of the OECD as a whole, with the notable exception of support to income, which is more than double the OECD average of 16%.

Support to MMCS is composed of support to MCS and stock assessment research. There has been a significant increase in spending in Peru on MMCS since 2010‑2012, with most of the increase oriented to the financing of stock assessments and MCS. Support to MMCS has increased 135% since 2010‑2012, when it was USD 17.7 million. The intensity of support to MMCS, however, was 88 USD/GT, which is significantly lower than the OECD average of 271 USD/GT.

Just over half of all fisheries support in Peru carries a risk of encouraging unsustainable fishing in the absence of effective management

Just over half (51%) of fisheries support in Peru carried a risk of encouraging overfishing and illegal unreported and unregulated (IUU) fishing in the absence of effective management in 2020‑2022 (with 2% having posed a high risk and 49% a moderate risk of doing so). This is largely in line with the OECD as a whole, albeit with a higher proportion of moderate risk support; the corresponding OECD figure for the same period was 42% of support posing a risk of unsustainable fishing (8% high and 34% moderate). The moderate risk support is entirely income support and support to infrastructure construction and modernisation. Peru’s high-risk support is for vessel modernisation and the purchase of gear. It is worth noting that Peru did not report any government support to fuel for any year, and in fact charges excise duty on diesel and other fuels used for marine navigation.

The context in which support is given is very important for understanding the extent to which that support actually may result in overfishing. For example, if management can effectively constrain any additional capacity and effort, if fisheries resources are underfished, or if support is targeted to a subgroup of fishers, then overfishing is less likely to result from high and moderate risk policies (OECD, 2025[9]). In Peru, the main commercial stocks are healthy and productive, their status is regularly assessed, and they are managed using TACs and input controls. In the case of anchoveta, the MCS systems likely mitigates much (although not all) of the risks associated with the fisheries support policy mix.

Peru has a comprehensive legal framework for the monitoring control and surveillance of fishing activities, and implements electronic monitoring in both industrial and small-scale fleets.

The GFL is the main legal instrument that governs fishing activity in Peru, including all aspects related to MCS and the fight against IUU fishing and fishing-related activities. The GFL is implemented through Supreme Decree 012‑2001, which under Title VIII further develops the legal guidelines concerning MCS in the fisheries sector and is complemented by derivative legal instruments. Together they form a comprehensive package covering Peru’s responsibilities in each of its roles as a flag, coastal, port and market state (FAO, 2001[10]). The GFL states that PRODUCE is the responsible agency for MCS activities of fishing activities and shall co-ordinate with other ministries and agencies actions for the correct implementation of the fisheries’ legal framework. MCS actions as well as interventions at sea against IUU fishing are carried out jointly with the Directorate General of Captaincies and Coast Guard (DICAPI).

Notably, Peru has two fishing vessels tracking systems:

• The Satellite Monitoring System for Fishing Vessels (SISESAT) allows for the MCS activities of fishing activities in Peru’s exclusive economic zone (EEZ). It consists of a GPS signal which is emitted automatically and at established intervals by fishing vessels; the signal includes time and data of position, transmitter ID, co-ordinates, speed, and the trajectory of the fishing vessel. It is mandatory for large-scale industrial fishing vessels fishing in the EEZ to use SISESAT, whether national or foreign flagged. In 2024, PRODUCE made the installation of SISESAT equipment mandatory for all foreign vessels engaged in the capture of straddling or transboundary fishery resources and vessels seeking to enter Peruvian ports for activities such as repairs, crew changes or supplies. Furthermore, in February 2025, PRODUCE adopted a new Supreme Decree (001‑2025) requiring the installation of SISESAT on artisanal fishing vessels by 2026.

• The Aquatic Traffic Identification and Monitoring System (SIMTRAC) is a mandatory automatic vessel positioning system created to determine the position and operation of vessels which includes navigation, access, stay and departure of vessels located in ports, anchorages, and waters of national jurisdiction.

Peru implements comprehensive registration and authorisation processes but informality in the sector and foreign-flagged vessels continue to pose challenges to monitoring control and surveillance activities

Peru has comprehensive registration and authorisation systems in place, covering all industrial fishing vessels and operators and artisanal fisheries. However, informality remains an important challenge in the artisanal fisheries segment, notably in remote coastal communities, but also in more developed segments of the fisheries sector. Peru has a register of vessels, available for public consultation on DICAPI’s website in compliance with its obligation as a flag state. It makes available a list of fishing vessels with current navigation licenses, covering Peruvian and foreign-flagged vessels (FFV). It provides details on the vessel name and International Maritime Organisation (IMO) and licence numbers, among others. Peru also has a comprehensive record of fishing vessels administered by PRODUCE. The record, publicly accessible, contains details on the characteristics of the vessel, licence number, shipowner, fishing authorisations, and any sanctions or administrative procedures, among others.

One of the priority areas identified by Peruvian authorities and by industrial and artisanal fishers is related to the control and enforcement of the foreign fleets. Over the last few years, PRODUCE, in collaboration with relevant institutions, has updated and modernised the legal framework for controlling the activities of FFV operating in Peruvian waters and where relevant in international waters. Despite this robust legal framework, there are significant challenges for the control of foreign fishing fleets and IUU practices have been identified by the government institutions, industrial and artisanal fishers and other stakeholders, notably in the areas of the Peruvian EEZ adjacent to the high seas, which are more difficult to control (Gozzer-Wuest, Alonso-Población and Tingley, 2021[11]; Paredes et al., 2024[12]). Importantly much of the IUU activity concerns the jumbo flying squid fishery, which is very important to artisanal fishers in Peru

Peru implements the provisions of the Port State Measure Agreement and has a comprehensive sanctioning regime to combat illegal, unreported and unregulated fishing

Peru has measures for port control of fishing vessels intended to prevent, deter and eliminate IUU fishing. The main legal basis of these measures is the GFL and its regulations, as well as the Port State Measures Agreement (PSMA). Peru ratified the PSMA in September 2017 and it came into force in October the same year. As part of the implementation, Peru has provided the relevant contact points and provides information in the Food and Agriculture Organization’s (FAO) World Register of Fishing, Refrigerated Transport and Supply Vessels and the FAO Global Information Exchange System. Also, Peru is progressively adopting a risk management approach to vessel inspection applicable prior to a vessel’s arrival in port, to improve efficiency.

The GFL and implementing instruments detail the prohibited practices and actions in the context of fishing activities and to a lesser extent of fishing-related activities; notably, they detail over 135 offenses, including unauthorised transshipment activities. The GFL also provides the general basis of the sanctioning regime. All offences (by action or omission) are administratively sanctioned by the Directorate General of Monitoring, Control and Surveillance or the regional directorates of production, without prejudice to any civil or criminal actions that may be applicable. Fishing legislation violations are sanctioned with a fine, suspension, confiscation or cancellation of the authorisation, license, concession or permit. Subsequently, cases that are found to be criminal offences are also referred to the Attorney General’s Office and other competent instances.

However, these efforts have been overshadowed by different policy decisions that grant amnesty or pardons to offenders and condone or significantly reduce the payment of fines for offenders, both natural and legal persons. Most recently, in July 2024, PRODUCE granted an 80% reduction for the payment of fines. These and previous exonerations have been motivated by the adverse effects of climate events or economic crisis (including the COVID-19 pandemic) and have also recognised the government’s limited administrative capacity to actually recover the outstanding monetary sanctions in many cases.

Aquaculture policies aim to unlock production potential by streamlining regulation and planning for climate change adaptation. PRODUCE is the governing body responsible for planning, regulating and implementing aquaculture activities at the national level. It also is responsible for the inspection, control, evaluation and supervision of aquaculture activities. As the institution in charge of formulating the national aquaculture policy, it co-ordinates and assists other institutions involved in aquaculture production.

The National Aquaculture System was created through the General Law on Aquaculture as an inter-governmental body that integrates the principles, procedures and instruments of the administration, management and development of aquaculture at the different levels of government. The system’s purpose is to co-ordinate, supervise, evaluate and ensure the nationwide implementation and enforcement of public policy on aquaculture. It brings together 12 national level institutions in addition to the relevant entities from the regional governments and research institutions. As is the case for marine fishing, the regional governments also have an important role in the development of aquaculture activities across the country. Administratively, regional governments, in conjunction with PRODUCE, are responsible for granting new concessions and authorisations and for renewing these rights.

The number of institutions involved in aquaculture regulations can pose challenges for producers. To address this, the Single Window for Aquaculture (Ventanilla Unica de Acuicultura, VUA)2, was created in 2015. It is an electronic integrated system through which the natural and legal persons involved in aquaculture activities can make requests and manage administrative requirements and procedures (Government of Peru, 2024[13]).3

The VUA was created to improve inter-agency co-ordination and promote administrative simplification for the benefit of aquaculture producers. One of its main outcomes was the standardisation of the administrative requirements and procedures across regional governments, which previously had differed widely. However, some of the administrative issues have persisted and the government has committed to implementing the Single Window for Aquaculture – version 2.0 (VUA 2.0) by December 2026.

The government has adopted a long-term strategic plan to address the multiple challenges facing the sector, including climate change

Government institutions and other stakeholders have identified climate change as one of the most pressing challenges for Peruvian aquaculture. Indeed, Peru is more exposed and vulnerable to natural hazards than many other countries due to the high frequency of hazards and spatial concentration of population and economic activity in high-risk areas (Ministry of Production, 2023[14]; Paredes et al., 2024[12]; Interviews in the context of the Review, 2024[15]; World Bank, 2022[16]).

In this context, Peru established the National Strategy for Climate Change to 2050 and the National Adaptation Plan 2021‑2030 which established institutional and legal frameworks for addressing climate change-related challenges and reduce the risks and vulnerability associated to climate change. More specifically, the aquaculture sector was included as a priority area in the National climate change adaptation plan (Resolución Ministerial N.° 096‑2021‑MINAM).

However, aquaculture and environmental policies could be more effective if they were implemented in a more co-ordinated way. Open dialogue between the government, specialised institutions, producers and other relevant stakeholders is necessary for effective adaptation and to achieve Peru’s commitments under different international agreements, but most importantly to advance in the design and application of policies to ensure the future sustainable growth of aquaculture in inland and marine environments (OECD/ECLAC, 2017[17]; World Bank, 2022[16]).

Conclusions and recommendations

The policy frameworks Peru has in place to manage its fisheries and aquaculture sectors compare favourably to those in OECD Member countries. The science-based management of fisheries resources has resulted in the resource base being healthy and productive. Notably in the case of anchoveta, the management systems are ‘worldclass’ and serve as an example on how to implement a dynamic and adaptive ocean management approach to fisheries. There is a broad implementation of electronic monitoring systems and there are ongoing efforts to expand these systems into artisanal fisheries, and institutional co-ordination at a national level seems to function effectively. However, there are also important challenges. Notably, informality, which is a broader issue extending across the Peruvian economy, poses challenges to managing the sector at all levels. Efforts by PRODUCE to address the issue should be embedded in a wider whole-of-government approach. In addition, vertical co-ordination and capacity shortfall in regional and local governments have hampered their roles in both MCS for fisheries and the development of aquaculture.

The recommendations of the Fisheries Committee to further align Peru’s policies and practices with OECD policies and practices are as follows:

On fisheries governance

• Strengthen vertical collaboration to ensure effective co-ordination with regional and local governments on fisheries issues, with specific efforts to ensure the effective and clear delegation of responsibilities across institutions.

• Enhance efforts to ensure remote coastal and continental communities (notably in the Amazon region) are informed of the latest developments in fisheries policies and are actively engaged in the policy-making process where required, to facilitate policy implementation.

On fisheries management

• Expand investments in stock assessments and data collection for artisanal fisheries, in particular by extending efforts to species currently not covered by fisheries management plans and, where required, implement new management plans to close regulatory gaps and ensure these species are not overexploited.

• Enhance the management of the artisanal sector by addressing overcapacity and informality through:

  • Continuing and enhancing the formalisation processes for informal fishers to ensure that all active artisanal fishers are registered with PRODUCE and have a right to fish. In particular, promoting the benefits of formalisation (e.g. access to government support, education and training, and improved on-vessel safety) can help incentivise fishers to formalise.

  • In parallel, expand efforts to address the illegal construction and alteration of fishing vessels in informal shipyards, in collaboration with the relevant ministries and law enforcement institutions.

  • Put in place measures to ensure that efforts to reduce overcapacity do not have negative socio‑economic impacts on affected fishers.

On government support to fisheries

• Investigate the socio-economic and sustainability impacts of high- and moderate-risk support programmes (e.g. income support and support to infrastructure construction and modernisation) to better understand whether these polices are achieving their stated goals, and whether they could be better targeted to ensure the overall sustainability of the sector.

  • Specifically consider the links between the support policy mix and overcapacity in the artisanal sector, notably programmes with a moderate risk of encouraging unsustainable fishing in the absence of effective management, to understand how these policies could be further improved, to better support a sustainable and efficient artisanal fisheries sector

On monitoring, control and surveillance, and the fight against illegal, unreported and unregulated fishing

• Strive for expanding the coverage of SISESAT (satellite tracking system) in artisanal fisheries by ensuring Supreme Decree 001‑2025‑PRODUCE, which mandates the installation of the system by the end of 2026, is implemented effectively.

• Strengthen inter-institutional efforts to prosecute and prevent the illegal construction and modification of fishing vessels, in particular by applying strict controls to close and prevent the operation of illegal shipyards.

• Continue improving the capacities of regional governments in the context of monitoring, control and surveillance, notably through capacity building and improved technological resources.

• Reinforce the sanctioning system for illegal, unreported and unregulated fishing and strengthen their deterrent effect by ensuring they are proportional to the nature and gravity of the infringements and avoiding new amnesties for the payment of fines.

On aquaculture

• Improve the “Single Window for Aquaculture” (Ventanilla Unica de Acuicultura - VUA), to strengthen its use as a tool for institutional co-ordination to reduce the administrative burden on aquaculture producers associated with fish farming production.

• Establish a set of indicators and review mechanisms, including a mid-term stock-take to assess the progress in meeting the objectives of the Aquaculture Development Plan and an assessment of the achievements and potential areas of improvement of the National Aquaculture System. This would allow PRODUCE to monitor and take any necessary additional measures to ensure the goals are met.

• Explore the opportunity to develop and adopt a spatial planning strategy, covering land, freshwater regions and sea areas and activities to help avoid conflict with other users of land, water and marine resources (e.g. tourism and capture fisheries) and adequately balance natural resources conservation and production.

References

[1] FAO (2022), FishStat: Global Aquatic Trade Statistics 1976-2022, http://www.fao.org/fishery/en/statistics/software/fishstatj (accessed on  December 2024).

[10] FAO (2001), International Plan of Action to Prevent, Deter and Eliminate Illegal, Unreported and Unregulated Fishing, Food and Agriculture Organization of the United Nations, Rome, https://openknowledge.fao.org/server/api/core/bitstreams/a80c3bfb-1d5b-4ee6-9c85-54b7e83986a2/content.

[13] Government of Peru (2024), Review of Peru’s fisheries and aquaculture: Policy information request for the background report informing the formal opinion of the OECD Fisheries Committee (COFI) on the accession of Peru to the Organisation.

[5] Government of Peru (2001), General Regulation of the Fisheries Law, http://www.gob.pe/uploads/document/file/418473/Decreto_Supremo_Nº_012-2001-PE.pdf?v=1573142303.

[4] Government of Peru (1992), General Fisheries Law, https://spij.minjus.gob.pe/spij-ext-web/#/detallenorma/H757193.

[11] Gozzer-Wuest, R., E. Alonso-Población and G. Tingley (2021), “Identifying priority areas for improvement in Peruvian Fisheries”, Marine Policy, Vol. 129, p. 104545, https://doi.org/10.1016/j.marpol.2021.104545.

[2] IMARPE (2024), Informe ejecutivo “Cuarta encuesta estructural de la pesqueria artesanal en el litoral peruano, ENEPA IV 2022-2023”, Ministry of Production, https://cdn.www.gob.pe/uploads/document/file/6908889/5966295-cuarta-encuesta-estructural-de-la-pesqueria-artesanal-en-el-litoral-peruano-enepa-iv-2022-2023.pdf.

[15] Interviews in the context of the Review (2024), Interviews conducted with Peru’s government representatives and stakeholders in the context of the Review.

[14] Ministry of Production (2023), National Aquaculture Policy to 2030, https://rnia.produce.gob.pe/wp-content/uploads/2023/01/POLITICA-NACIONAL-DE-ACUICULTURA.pdf.

[9] OECD (2025), OECD Review of Fisheries 2025, OECD Publishing, Paris, https://doi.org/10.1787/560cd8fc-en.

[3] OECD (2023), OECD Economic Surveys: Peru 2023, OECD Publishing, Paris, https://doi.org/10.1787/081e0906-en.

[17] OECD/ECLAC (2017), OECD Environmental Performance Reviews: Peru 2017, OECD Environmental Performance Reviews, OECD Publishing, Paris, https://doi.org/10.1787/9789264283138-en.

[6] Paredes, C. et al. (2024), La pesca en el Perú: Una ruta hacia un futuro próspero y sostenible, Universidad Continental, Fondo Editorial, Huancayo, Peru, https://doi.org/10.18259/978-612-4443-64-0.

[12] Paredes, C. et al. (2024), La pesca en el Perú: Una ruta hacia un futuro próspero y sostenible, Universidad Continental, https://doi.org/10.18259/978-612-4443-64-0.

[8] PRODUCE (2024), Anuario Estadistico Pesquero y Acuicola 2023, https://www.producempresarial.pe/anuario-estadistico-pesquero-y-acuicola-2023/.

[16] World Bank (2022), Peru Country Climate and Development Report, World Bank Group, Washington, DC, http://documents.worldbank.org/curated/en/099220512062228587.

[7] World Bank (2021), Repensar el futuro del Perú: Notas de política para transformar al Estado en un gestor del bienestar y el desarrollo, World Bank, San Isidro, Lima, https://www.bancomundial.org/es/country/peru/publication/repensar-el-futuro-del-per-apuntes-de-pol-tica-para-transformar-al-estado-en-un-gestor-del-bienestar-y-el-desarrollo#2.

Notes

← 1.  The exploitation rate is the mortality due of exploitation expressed as a proportion of the mortality due to natural causes when the stock is unexploited (e.g. virgin biomass).

← 2.  Available at: https://rnia.produce.gob.pe/ventanilla-unica-de-acuicultura.

← 3.  See https://rnia.produce.gob.pe/ventanilla-unica-de-acuicultura/.