2022–2023 Philippine Sugar Crisis
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There has been a noted
shortage In economics, a shortage or excess demand is a situation in which the demand for a product or service exceeds its supply in a market. It is the opposite of an excess supply ( surplus). Definitions In a perfect market (one that matches ...
of supply of
sugar Sugar is the generic name for sweet-tasting, soluble carbohydrates, many of which are used in food. Simple sugars, also called monosaccharides, include glucose Glucose is a sugar with the Chemical formula#Molecular formula, molecul ...
in the domestic market of the
Philippines The Philippines, officially the Republic of the Philippines, is an Archipelagic state, archipelagic country in Southeast Asia. Located in the western Pacific Ocean, it consists of List of islands of the Philippines, 7,641 islands, with a tot ...
after a poor harvest of for the 2021–22 crop year. This led to the price increase of the commodity and there has been suspicions of traders taking advantage of the situation through
hoarding Hoarding is the act of engaging in excessive acquisition of items that are not needed or for which no space is available. Civil unrest or the threat of natural disasters may lead people to hoard foodstuffs, water, gasoline, and other essentials ...
and/or
smuggling Smuggling is the illegal transportation of objects, substances, information or people, such as out of a house or buildings, into a prison, or across an international border, in violation of applicable laws or other regulations. More broadly, soc ...
. A plan to import 300,000 MT of sugar through Sugar Order No. 4 was subject to controversy which led to the resignation of officials of the
Sugar Regulatory Administration The Sugar Regulatory Administration (SRA; Filipino: ''Pangasiwaan sa Regulasyon ng Asukal''; Hiligaynon: ''Administrasyon sa Regulasyon sang Kalamay'') is a government-owned and controlled corporation attached to the Department of Agriculture o ...
(SRA). A subsequent SRA Sugar Order, specifically Sugar Order No. 6 dated February 6, 2023, also became subject of a Senate inquiry, in aid of legislation, through Senate P.S. Res. No. 497 filed on February 21, 2023 by Senator
Risa Hontiveros Ana Theresia "Risa" Navarro Hontiveros Baraquel (; born February 24, 1966) is a Filipino politician who has served as a senator of the Philippines since 2016. A member of the progressive Akbayan party, she previously served as its party-list ...
and before the
Senate Blue Ribbon Committee The Senate Committee on Accountability of Public Officers and Investigations of the Senate of the Philippines, or more popularly known as the Blue Ribbon Committee, is the Senate committee tasked to investigate alleged wrongdoings of the governm ...
.


Cause


Low output

Sugar Regulatory Administration The Sugar Regulatory Administration (SRA; Filipino: ''Pangasiwaan sa Regulasyon ng Asukal''; Hiligaynon: ''Administrasyon sa Regulasyon sang Kalamay'') is a government-owned and controlled corporation attached to the Department of Agriculture o ...
(SRA) administrator Hermenegildo Serafica noted a decrease of sugar output in the Philippines for the 2021–22 crop year. Only 1.8 million metric tons (MT) was produced by June 15 in contrast to the 2.12 million MT output produced by June 13 of the 2020–21 crop year. An unusual decline of sugar production was noted for
Negros Negros (, , ) is the fourth largest and third most populous island in the Philippines, with a total land area of . The coastal zone of the southern part of Negros is identified as a site of highest marine biodiversity importance in the Coral Tr ...
according to the March 2022 to May 2022 production data. This was attributed to the onslaught of
Typhoon Rai Typhoon Rai, known in the Philippines as Super Typhoon Odette, was a deadly and extremely destructive super typhoon, which was the second costliest typhoon in Philippine history behind Typhoon Haiyan in 2013. Rai was a powerful rare tropical c ...
(Odette) which damaged the leaves of sugarcane plants in the island.
Negros Occidental Negros Occidental (; ), officially the Province of Negros Occidental (; ), is a Provinces of the Philippines, province in the Philippines located in the Negros, Negros Island. Its capital is the city of Bacolod, of which it is geographically s ...
is the country's top sugar-producing province. According to the SRA's Sugar Regulatory directory, the province hosts five out of 12 active sugar refineries for the 2021–22 crop year. The Philippines is not a regular importer of sugar and only imports whenever needed.
Thailand Thailand, officially the Kingdom of Thailand and historically known as Siam (the official name until 1939), is a country in Southeast Asia on the Mainland Southeast Asia, Indochinese Peninsula. With a population of almost 66 million, it spa ...
, the second-largest producer in the world after
Brazil Brazil, officially the Federative Republic of Brazil, is the largest country in South America. It is the world's List of countries and dependencies by area, fifth-largest country by area and the List of countries and dependencies by population ...
, is the top source of imported sugar in the Philippines.


Hoarding

There are suspicions that the crisis is caused by
hoarding Hoarding is the act of engaging in excessive acquisition of items that are not needed or for which no space is available. Civil unrest or the threat of natural disasters may lead people to hoard foodstuffs, water, gasoline, and other essentials ...
. United Sugar Producers Federation (Unifed) President Manuel Lamata, insisted that unspecified traders are engaged in "manipulation and hoarding" and claimed that there is no shortage at all. According to Executive Secretary Vic Rodriguez, the government is investigating reports of traders lobbying for the importation of 300,000 MT of sugar so that they could use the additional sugar supply as a cover to sell their hoarded sugar. After raids conducted in separate locations in August 2022 which yielded 10,700 MT of sugar, the Philippine government concluded that the shortage is "artificial".


Smuggling

State-sponsored sugar smuggling has also been alleged as a key cause of the Philippine sugar crisis. Senator Risa Hontiveros, through Senate P.S. Res. No. 497 filed on February 21, 2023 and before the
Senate Blue Ribbon Committee The Senate Committee on Accountability of Public Officers and Investigations of the Senate of the Philippines, or more popularly known as the Blue Ribbon Committee, is the Senate committee tasked to investigate alleged wrongdoings of the governm ...
, alleged that the Sugar Regulatory Administration's Sugar Order No. 6 permitted the smuggling of four hundred forty thousand (440,000) metric tons of sugar by and in favor of three (3) only three importers under terms that are contrary to law, including the Anti-Agricultural Smuggling Act.


Impact

Food inflation Food inflation is a type of inflation that affects food items. It often the most noticeable form of inflation, and tends to impact lower income individuals the hardest. Common causes include poor harvest, war, increasing energy prices, and food be ...
increased as a cause of the sugar crisis. In May 2022, the overall price of consumer goods rose by 4.9%. The retail price of sugar itself had also increased. Due to the sugar shortage, soda manufacturers
Coca-Cola Beverages Philippines Coca-Cola Europacific Aboitiz Philippines, Inc. (CCEAPI, founded as Coca-Cola Bottlers Philippines, Inc.), also formerly known as Coca-Cola Beverages Philippines, Inc. and Coca-Cola FEMSA Philippines, Inc., is a Philippine-based company engag ...
, Pepsi-Cola Products Philippines, and ARC Refreshments Corporation released a joint statement on August 16, 2022, that they were experiencing a supply shortage of
refined sugar White sugar, also called table sugar, granulated sugar, or regular sugar, is a commonly used type of sugar, made either of beet sugar or cane sugar, which has undergone a refining process. It is nearly pure sucrose. Description The refini ...
or bottlers' grade sugar. According to 2nd Albay district representative
Joey Salceda Jose Ma. Clemente "Joey" Sarte Salceda (, born October 26, 1961) is a Filipino statesman and the current Representative of Albay's 2nd District in the Philippine House of Representatives. He previously served as governor of Albay province in t ...
, soda manufacturers may shift to
high-fructose corn syrup High-fructose corn syrup (HFCS), also known as glucose–fructose, isoglucose, and glucose–fructose syrup, is a sweetener made from corn starch. As in the production of conventional corn syrup, the starch is broken down into glucose by enzy ...
if the sugar supply issue continues, which is taxed heavier under the Tax Reform for Acceleration and Inclusion (TRAIN) Law. Manufacturers as a result may increase prices of their products to compensate in an event of a shift to the more heavier taxed sweetener. The crisis has also threatened the operations of
Cebu Cebu ( ; ), officially the Province of Cebu (; ), is a province of the Philippines located in the Central Visayas region, and consists of a main island and 167 surrounding islands and islets. The coastal zone of Cebu is identified as a ...
province's oldest and only sugar milling company, Bogo-Medellin Milling Company, Inc. (Bomedco) in the town of Medellin. Salceda warned against relying on sugar imports to alleviate the sugar crisis, pointing out that the sugar is a "political and social issue" since the industry directly employs 700,000 people. According to him, overreliance on imports might affect the livelihood of these people.


Response


Unauthorized Sugar Order No. 4

Sugar Order (SO) No. 4 was released by the Sugar Regulatory Administration (SRA) on August 9, 2022, which directed the importation of 300,000 MT of sugar to the Philippines. It was intended to "fill the gap in production". The order was signed by SRA administrator Hermenegildo Serafica, and board members Roland Beltran (miller's representative) and Aurelio Gerardo Valderrama Jr. (planters' representative). Agriculture undersecretary Leocadio Sebastian also signed the order in behalf of President
Bongbong Marcos Ferdinand "Bongbong" Romualdez Marcos Jr. (, , ; born September 13, 1957), commonly referred to by the initials BBM or PBBM, is a Filipino politician who has served as the 17th president of the Philippines since 2022. He is the second child ...
, who also concurrently serves as SRA chairman and agriculture secretary. However,
Press Secretary A press secretary or press officer is a senior advisor who provides advice on how to deal with the news media and, using news management techniques, helps their employer to maintain a positive public image and avoid negative media coverage. Dutie ...
Trixie Cruz-Angeles Rose Beatrix "Trixie" Laviña Cruz-Angeles (born March 29, 1965) is a Filipino lawyer and vlogger who served as Press Secretary of the Philippines from June 30, 2022, until October 4, 2022. Education Cruz-Angeles attended the University of the ...
released a statement that President Marcos did not authorize or sign the order. SRA administrator Serafica resigned on August 10, 2022, over Sugar Order No. 4 (SO 4) which was approved by President Marcos and publicized six days later. Agriculture undersecretary Sebastian, and SRA board member Beltran also resigned from their positions. The directive was scrutinized in both houses of the
Congress A congress is a formal meeting of the representatives of different countries, constituent states, organizations, trade unions, political parties, or other groups. The term originated in Late Middle English to denote an encounter (meeting of ...
: the
House of Representatives House of Representatives is the name of legislative bodies in many countries and sub-national entities. In many countries, the House of Representatives is the lower house of a bicameral legislature, with the corresponding upper house often ...
and the
Senate A senate is a deliberative assembly, often the upper house or chamber of a bicameral legislature. The name comes from the ancient Roman Senate (Latin: ''Senatus''), so-called as an assembly of the senior (Latin: ''senex'' meaning "the el ...
(through the Blue Ribbon Committee). Sebastian cited a July 15 memorandum by Executive Secretary Vic Rodriguez when asked why he signed SO 4 in behalf of Marcos. He was questioned by members of the House of Representatives for his decision believing he did not have any explicit authorization from Marcos. Sebastian maintained that he signed the order in good faith and conceded that he might have "misread" the intention of Marcos, Rodriguez, and other SRA officials. In a letter to explanation address to Marcos, SRA board member Valderrama maintained that the importation order is based on SRA official data, supply and demand analysis, as well as prevailing high market prices and it was done with consultations with sugar traders. Serafica speaking before the Senate Blue Ribbon Committee admitted he did not consult the board when he drafted SO 4 itself, though he pursued the order following an SRA online meeting with stakeholders including traders on July 29, 2022.


SRA reorganization

President Marcos announced that he would reorganize the SRA amidst the SO 4 importation controversy. Marcos appointed David John Thaddeus Alba as acting administrator, and Pablo Luis Azcona and Maria Mitzi Mangwag as board members.


Other response

Despite the averted Sugar Order No. 4, President Marcos in mid-August still raised the possibility of importing sugar to the Philippines to address the sugar crisis. He said that around 150,000 MT of sugar could be imported to address the country's needs for the rest of 2022 and projected the current supply to last until October. Marcos is also looking to secure concessions from traders to keep the price of sugar at a "reasonable" rate and has considered allowing manufacturers to directly import sugar to fulfill their own needs.


Aftermath

In December 2022, the Office of the President (OP) dismissed the case against former officials of the
Department of Agriculture An agriculture ministry (also called an agriculture department, agriculture board, agriculture council, or agriculture agency, or ministry of rural development) is a ministry charged with agriculture. The ministry is often headed by a minister f ...
and SRA, including Sebastian, Serafica, Beltran, and Valderrama, on grounds that there was no clear evidence that the respondents signed the 300,000 metric tons sugar importation in bad faith. The OP also noted that former Executive Secretary Vic Rodriguez's memorandum dated July 15, 2022 was the source of the miscommunication for the respondents.


See also

*
2022–2023 Philippine onion crisis By late 2022, the price of red and white onions in the Philippines increased significantly, reaching an all-time high in December at per kilogram and leading people to smuggle the commodity into the country. Background Along with garlic, onio ...
* Sugar industry of the Philippines


Notes


References

sugar crisis sugar crisis Bongbong Marcos administration controversies Political scandals in the Philippines sugar crisis Sugar industry of the Philippines August 2022 in the Philippines History of sugar Food politics {{DEFAULTSORT:2022-2023 Philippine sugar crisis