CoostolA Stotus

Tourism in Tomilnodu:Report

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BangaloreINDIA

Coastal Tourism in Tamilnadu:A Status Report

Published by EQUATIONS in March,2000

Write to us at:

EQUATTONS

Equitable Tourism Options

Post Bag No.75l2

Bangalore - 560 075

Telefax: + 9l-80-528 2313

E-mail: coast@equitabletourism.org

Visit us at: http://www.eq u itabletou ris m.org

Equitable Tourism Options

EQUATIONS is a non-profit organisation established in 1984. EQUATIONS is

the only non-governmental organisation in lndia, working exclusively on the

impact of tourism. Designed to critically understand and react to the effects of

thoughtless and insensitive use of tourism as a developmental instrument by the

State and the industry, EQUATIONS has been instrumental in creating a critical

debate on tourism development in lndia. We work towards transforming the

inherently exploitative nature of mass commercial tourism. We question the

real benefits of tourism to the host communities as well as its socio-cultural and

economic impacts. Our activities include documentation, publication, research,

seminars and the investigation of alternative tourism policies and structures.

Contents

Preface

Introduction

Tourism: A Status Repoft from Kanniyakumari

Tourism: A Status Report from Mamallapuram

Special Tourism Areas: Revisiting the concept

Annexure I -Chief Minister's letter to the Minister for Environment and Forest,

New Delhi

Annexure ll -

Chief Minister's letter to the Minister for Tourism, New Delhi

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Prefoce

Tamil Nadu and its tourist activities is an important focus area within EQUATIONS.

We have documented the tourism trends and developments of this vast, culture-

rich fand and the people earlier also through our Dossier on Tourism: lssues in

TamilNadu, both in English and in Thamizh,

As far as the coastal issues are considered our interyention is not limited to tourism

alone, but includes all issues that threaten the 1050 km of the coastline, ranging from

industrial shrimp farming, East Coast Road and its social, environmental problems,

urbanisation and socio-economics of the community along the coast. Monicoring rhe

impacts of these developments has been our regular activity.

This study is focussed on Kanniyakumari and Mamallapuram, the most prominenr

tourist destinations along the coast. Both these destinations are historical pilgrim

centres. Changes in the focus of tourism development is fast transforming these

centres into mass tourism destinations, leaving behind their sanctity and tranquility

as pilgrimage centres.

As tourism changes in content, the infrastructure reguirements also change, exerting

pressure on the fragile coastal environment, irrespective of already existing threats.

In addition to this, the government and tourism authorities are trying to evade the

protective regulations for the coastal regions. lt is these hctors that have prompted

us to make a status report on these two destinations. The nature of tourism, status

of the coast and coastal community, compliance with laws, etc. were recorded by

means of survey, interviews with local community, and with tourism and other

administrative bodies etc.

Legal Resource for Social Action (LRSA), Chengalpattu has assisted us in the study

on Mamallapuram.

This study is partof the Coastal ZoneWatch progmmme of EQUATIONS, supported

by ICCO of Netherlands.

EQUATIONS team

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Introduction

Of the 7500 km. coastline of lndia, Tamilnadu has a 1050 km. stretch that amount to

17% of the total lndian coast. Physically this coastal zone is defined as a rather

narrow transitional ribbon occurring where a continental landmass meets a tidal sea.

The State has an average rainfall of 945 mm.

Tamil Nadu is endowed with among the largest and richest fishery wealth in India.

The Exclusive Economic Zone form 1.9 lakh sq. km, covering the Coramandel Coast,

Palk Bay, Gulf of Mannar, and part of the West Coast of lndia, beside 2 | coral islands

in the Gulf of Mannar, with its rich habitats of live corals, coastal lagoons, mangroves

and estuaries. Regarding inland fisheries, there are five major rivers, 5 | reservoirs

and innumerable tank.

The Tamil Nadu coast has not only a highly productive eco-system, but also unique

and rare with diverse habitats with a variety of natural resources, providing

innumerable resources for human existence. This coastalzone is studded with nearly

26 bigand small urban centres and 472 fishing villages, and forms a major section of

the economic activity in the State. 9 lakh fishermen and 20 lakh people are dependent

on marine resources for their livelihood, in the State.

Threots to the Coastal Ecology

lndustrialisation, inappropriate infrastructure creation, urbanisation and rampant

development all along the coast threaten to upset the ecological balance of the

coast. This affects not only the resource availability, but also has repercussion on the

economic activities along the coast, mainly affecting the large fishing community and

other peoples dependent on marine resources.

Starting with the East Coast Road, examples of this are many. Four mega-thermal

power plants are in various stages of planning and construction. One of these, the

PPN Thermal Power Plant at Tharangambadi in Nagapattinam District has already

resulted in a drastic depletion of fishery resources, and has caused severe erosion in

8 fishing villages. The North Chennai Thermal Power Plant withdraws water from

the Ennore creek and pumps the used thermalwater into the sea, destroying marine

life.

Monitoring the fomilnodu Coosl

EQUATIONS

Aquaculture has already contributed to devastating destruction of marine life forms

and the coastal ecology of the state. The construction of the Ennore Satellite Port

has already destroyed marine wealth, and now threatens'the existence of many

fishing habitats, as it has caused dangerous and alarming levels of erosion.

While these forms of threats have already caused significant damage to the marine

ecology, and also affected the health and welhre of many coastal communities, the

threat now stand renewed and intensified, with the strong rise of the tourism industry.

Tourism in Tomil Nodu

The latest tourism figures show that the industry is in an upward trend. The tourist

arrivafs during | 998 have been 2 10.50 lakh registering 7.67"increase over the previous

year. Tourism earnings is also estimated a similar growth of Rs.2750 lakhs, 12%from

that ofthe previous year.

The government has declared tourism as an industry. As part of promotional incentive

it has also ordered to grant concessions and subsidies for schemes commissioned on

or after 20.1.1992. Following are such schemes:

l. One, Two, Three star hotels with an outlay of less than 100 crore in places

other than Chennai, Coimbatore and Madurai.

2. Amusement Parks, Air Conditioned coaches to be operated by approved tour

oPerators.

3. Golf course.

4. Governmentapproved restaurants

The state government is in the act of drawing up a new tourism policy for the state.

Considerations are also kept in mind of the Government of India announcement to

gear up preparations for Explore India in the Millennium Year. Some of the features

of the policy are as follows:

l. Facilities specifically required for each tourist centre will be provided for the

benefit of the inbound tourists

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2.

3.

4.

To prepare a Master Plan for Special rourism Areas, to identiff the deficiencies

in infrastructure and suggest integrated intensive developmental activities.

To encourage private investments in tourism promotion and arrange to channelise

through a single window clearance.

fs aggressively campaign and publicise, any tourism product in other states and

foreign travel marts.

To constitute Tourism Development Committee in all the districts in the state

quarters, and

To propagate cultural tourism intensively by conducting various festivals

The better turnout, of tourists in natural surroundings is seen as indicators of changing

tourist interest. According to the government estimation of the total number oftourists during 4997,25.4 per cent have visited natural locations. This points to the

Promotion of eco tourism in the state. Kurusadi group of islands, Kolavoi Lake at

Chengalpattu, Pulicot Lake at Chennai and the Pitchavaram Mangroves at

Chidambaram are destinations where infrastructure requirements shall be

strengthened.

Coastal regulation Zone notification and the conditionalities of the East Coast Road

have turned out to be detrimental to beach tourism. The state government had

requested the Ministry of Environment and Forests to remove said conditionalities

so that, beach tourism activities could be continued.

As part of the state contribution to Explore lndia in the Millennium Yedr, festivals

and fairs are planned in addition to the ones now celebrated. Campaigns and

advertisements though TV and journals are planned. Tamil Nadu Tourism

Development Corporation has plans for more number of package tours.

As part of promotion and marketing TTDC is making arrangements for tie-up with

B.H.E.L, ITDC, Indian Oil Corporation, Reserve Bank of India and Indian Bank for

sharing of facilities at various destinations.

These are some of the salient features of the up coming tourism policy of the state.

6.

Monitoring the Tomilnodu Coosl

ESUATIONS

As usual in the enthusiasm for tourism promotion certain fundamental issues that

are existing today at various tourist centers are still not addressed. Equipping the

local community for direct involvement in tourist activities,'protection to informal

sector, women pafticipation in tourist activities, more powers to panchayats for

checking the ill effects of tourism, handing over local destinations to panchayats,

involving local groups and NGOs in tourism planning and environmental protection

etc are yet to be part of the tourism policy.

Tourism on the Tamil Nodu Coost.' The need foron Evoluotive Study

The Tamil Nadu coast has many spots, which are tourist destinations, because of

their historical value, and natural beauty. Primary among these are Mamallapuram

and Kanyakumari. Tourism is being given an added impetus with the declaration of

some of these areas as "special Tourism Areas" (STA), and are projected as areas

where such development of tourism brings in bountiful benefits, in terms of foreign

exchange, as well as development, modernisation and infrastructure creation.

However, the Tamil Nadu government seems to the other side of the coin and all

the repercussions of promoting tourism with such intensity and in its present form.

They seem to use the words 'development' and 'foreign exchange' as mantras for

vehemently supporting tourism, and have also gone to the extent of stating that the

Coastal Regulation Zone (CRZ) is anti-tourism, and must be amended. The

government is also very keen to go back on its promise about the East Coast Road,

that no development of industries or resort constructions would be allowed on the

seaward side of the Road, and again laments the loss of foreign exchange that it says

this would cause.

These issues make us aware that such development, has many negative repercussions,

and these needs to be understood and acknowledged, before entering into an intensive

promotion of tourism.

ln ignoring these issues, the government has clearly forsaken the cause of the

environment and the local communities, which would be lost in this exercise. lt does

not seem in the least concerned by the effects that such intensive tourism would

=have, not only in its own self, but also through the infrastructure creation and ancillary

development that is inevitable in its wake. While it makes predictions in the air

about employmentgeneration and improvement of living standards, and a "sustainable

balance between development and preserrration of the coastal belt", the coast and

the coastal peoples of Tamil Nadu tell a different story altogether.

It is towards this understanding that the document brings forward these problems

and issues from Tamil Nadu's main tourist spots: Mamallapuram now an STA, and

Kanniyakumari.

Tourism in Momollopurom

Mamallapuram is one of Tamil Nadu's traditional tourism destinations, the shore

temple being the main attraction. As the Government envisages tourism as a potential

development model, Mamallapuram has been declared as an STA, and awaits major

tourism development. The STA will also cover, besides Mamallapuram proper, the

area from Muthukadu upto PondicherrT. The coast is already threatened by erosion.

Added tourism development can only serve to aggravate the problems if there is no

adherence to the management and protection concepts as laid down in the Coastal

Regulation Zone Notification, 1991.

Tourism. in Kanniyakumari

Kanniyakumari is unique in its geographical location and natural settings. Being the

southern-most tip of the Indian sub-continent, it is the point of confluence of three

oceans, the Arabian Sea, Bay of Bengal, and the Indian Ocean. From a pilgrimage

centre, Kanniyakumari is fast changing its profile to a mass tourism destination.

Already, the development of hotels and resorts is concentrated within a small area.

The unique sunset and sunrise, for which Kanniyakumari is very well known, is

increasingly being obstructed by high rise constructions. Kanniyakumari coast is also

threatened by erosion.

Methodology

The document is based on surveys undertaken of these areas, and the opinions,

views, and problems that were revealed during these surveys. ln addition to this, the

issues are placed in the context of the Resolution relating to Special Tourism Areas.

Monitorlng the Tamllnodu Coqst

EOUATIONS

Finally, a critical analysis of the STA concept, as well the particular issues relating to

Mamallapuram and Kan;rakumari are offered.

In the wake of writing of a new tourism policy, it is our hope that the government,

tourism department and the industry realise the real happening on the ground. lt is

imperative that tourism be considered as an activit), that shall protect the environment

rather than destroy it, local community and people are considered partners in this

development rather than be robbed of their habitaa and economic activities, the

sanctity and culture of the destinations are maintained but destroyed and convefted

to the needs of tourism and foreigners. lt is also the interest of this document that

unlike any other industry, tourism should act as a people and environment friendly

activit)r.

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Kanniyakumari

Beyond the tip of land is the expanse of water of three mighty oceans, the Arabian

Sea, the Bay of Bengal and the Indian Ocean. Unique in its geographical setting and

natural surrounds, Kanniyakumari has been highlighted as 'The land's end of India or

the point where the seas meet'r. Kanniyakumari is also the meeting point of the

eastern and western land stretches of the country. This has contributed to the

uniqueness that is felt in the land formations on the immediate coast. The features

of the coast are more inclined to the western coast. 'The marine landforms along

the Kanniyakumari coast is restricted to a width of less than One Kilometre due to

high relief of the inland areas, which represent the slopes of the Wesrern Ghats

when compared to the Eastern coast'2.

Known as one of the most, famous pilgrim centers of our country, Kanniyakumari is

sacred to the pilgrims all over India. The rare feature of meeting of three oceans is

considered as most sacred. The place is also occupies an important part of Indian

mythology. ln 6ct, the place has derived its name from the virgin goddess, Kanniya

kumari. However, what was once a traditional pilgrim centre is today transforming

itself to more modern forms of tourism. The profile of visitors is transforming from

pilgrims to pleasure tourists and picnickers. With the change in profile, more and

more luxury hotels and resofts have sprung up here in lhe recent past, with all

modern amenities.

Kanniyakumari district is one of the prominent fishing centers of Tamil Nadu. There

is high concentration of fishing communities at villages like Neendakara,

Lakshmipuram, Colachel, Painkulam etc, making Kanniyakumari a highly populated

region. At Kanniyakumari proper, the fishing community live along the immediate

coast, sandwiched between the high rise buildings and the erosion prone beach.

They hardly have any interaction with tourists nor does the tourism industry contribute

anfhing to their economy.

' t Explore lndia Millennium Brochure of the Tamil Nadu State Tourism Department.

2 Tamil Nadu Coastal Zone Management Plan, 1996 p.72

Monitoring the Tomllnodu Coost

EOUATIONS

The prominence Kanniyakumari enjoys today is that of tourism. The latest among

the tourist attractions is the Thiruvalluvar statue, erected on the rock formation in

the sea adjacent to the Vivekanda Memorial.

Another attraction to the visitors would be the Kamaraj Memorial already under

construction. As the number of tourist attractions increase, the tourist inflow also

increases. This makes the authorities look towards more infrastructure developmenr

and related facilities. However, the process continues without heed of the various

impacts that tourism has had, over the past years.

Coastal Zone Management Plan and Kanniyakumari

The Coastal Zone Management Plan of Tamil Nadu describes Kanniyakumari as3:

Kanniyakumari is the Lands End of the lndian Peninsula, where waters ofthe Arabian Sea, lndian Ocean and the Bay of Bengal meet. h is one ofthe imporant pilgrim centres of lndia. A fine beach landscape with sands

of myriad colour is another interesting aspect of Kannis,akumari. From

the beautiful beach, one can simulaneously see theglorious sQht of the

moon rising up on the east, and the sun setting on the west on a full

moon day. There is a sacred ancient temple dedicated to Kannisra Kumari,

the virgin goddess from which the district derives its name, The temple

is a symbol of unity and sanctity. The beautiful Gandhi Manap is situated

as a memorial to the Father of the Nation...

...Vivekananda Memorial: There are two rocks projecting out of the

ocean, south-east of Kanniyakumari temple. These rocks provide an

ideal vantage point for visitors desining (sic) to view the Landb End oflndia. On this rock stands the Wvekanada Roc!: Memorial, built in 1970

in a blend of all the architectural styles of lndia.

1 lbid

=The imoginonf beach

The figurative description in the Coastal Zone Management Plan (CZMP) remains,

but the beautiful beaches referred to above are now non-existent in Kanniyakumari

today. lf the Kumari Amma.n Temple is taken as a point of reference the beach

towards its eastern side is the community settlemenc There is hardly a five-metre

width of beach in-between the community settlements and the sea. lt is in this little

patch the community parks their Catamanns. (Their boats are parked much further

away in the fishing harbour, causing the community much hardship and monetar;r

loss) The mud road immediately after the small strip towards the landward side is

already threatened by severe erosion.

Further south from the temple is the Beach Road. The road begins from the Gandhi

Memorial towards the south, extends a little over half a kilometre towards the

south. The road is in an elevated position compared to the narrow strip of land

towards the sea, and has a wall that spans its entire length. After running a litde over

half a kilometre, the road turns a right angle inland. The land where the road begins

is comparatively wider and as it extends towards the south itgets narrower, ranging

between twenq/ and thirty metres. lt also is steeper in this area. There is a sea wall

as this land meets the sea. There are no pathways or steps to descend to the beach

as the road gets steeper. This entire area is now the dump yard of construction

wastes. One wonders under what logic is the narrative description of 'fine beach'

and landscape in the Coastal Zone Management Plan.

The little wider area between the beginning of the road and the sea has already been

consumed by the'beautiful Gandhi Memorial'. The rest, till recently, was landscaped

where people could walk in and sit. This land is now the site of the latest addition

following the path of the Gandhi Memorial - the Kamaraj Memorial. The construction

of the Kamaraj Memorial is in full swing. Since there are many more important

personalities whose contributions to the people have to be remembered through

memorials, we can be sure the rest of the land shall also be converted, gradually,

into concrete monoliths. The myriad colours referred in the CZMP are nowhere to

be found, at least, in and around Kanniyakumari proper, where the tourists visit.

A view of the Kanniyakumari skyline shows urban, concrete monoliths, rather than

the peaceful place of pilgrimage that it is held out to be. Tourism development has

resulted in both constructions of hotels, monuments and other related structures

without restraint. This has manifold effects.

Monitoting the Tomilnodu Coosl

EOUATIONS

Firstly, this rampant development of the tourism industry is a suicidal process.

Nowhere does the slyline of Kanniyakumari afford a view of its renowned sunsets,

nor do the "beaches", mere strips of land barely a few metre3 wide, and filled with

wastes, allow a place for visitors to stand and enioy the beauty of the sea. The

immediate stretches of land adjoining the sea towards the southern side have been

completely occupied by various hotels. The Gandhi memorial has already contributed

to this blocking of the skyline, and diminishing of beach space. The Kamarai Memorid

is soon to follow suit. This results in the value of Kanniyakumari as a tourist spot of

heritage and beauty being drastically reduced.

Secondly, the development of tourism has resulted in inappropriate infrastructure

creation, which has had extreme environmental repercussions. A prime example of

this is the jetty which services Vivekananda rock. This jetty protrudes into the sea,

parallel to the coastline, requiringthe currents to bend and flow in another direction.

This results in changes in the functioning of the coast on adiacent, areas, and drastically

increases sea erosion. Erosion is also compounded by pressures of hotel and other

constructions on the beach itself.

One must also remember that the currents around Kanniyakumari are totally

unpredictable, given that it is the confluence of three waters. lt is therefore not

possible to predict the repercussions of interfering with the very sensitive forces of

nature. The rampant presence of sea walls, and breahtrrater walls, only serye to

reinforce the aggressive forces of nature, rather than to afford any protection from

them.

These fucts are clearly demonstrable by a mere look at what is the "beach" at

Kanniyakumari. The beach is a mere strip of land, hardly a few metres wide in many

areas. The "beach" is also a dumping ground for garbage and construction wastes.

The combined factors of erosion and rapid sea level rise, along with increased

incursion into the beach land by hotels and other properties, have reduced the

beach at Kanniyakumari to a non-entity'

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Coostal Regufotion Zone: its understonding to CZTAP mokens

The CZMP continuesa:

Sheet No.30. Kannlakumari Town hlls in this segment. The buik up

area has been classified x CRZ ll and the other areas as CRZ lll. The

area close to the Manakkudi Ka2,al is classified as CRZ l.

It is important to look into what the Coastal Regulation Zone Notification has

envisaged while it set guidelines for classiffing coastal stretches into various zones.

Based on these guidelines the 'manufacturers' of the C,Z;MP should have classified

the beaches of Tamil Nadu.

The CRZ Notification of l99l in Annexure I under the title Coastal Area Classification

and Development Regulations, sub heading Classification of Coastal Regulation Zone:

6( l) For regulating development activities, the coastal stretches within

500 metres of High Tide Line on the landward side are classified into

four categories, namely:

Categoty | (CRZ 0

(t) Areas that are ecologically sensitive and important, such as

nationalparlcs, marine parks, sanctuaries, rserve forests, wildlife habiats,

mangroves, conls/coral reefs, areas close to breeding and spawning

grounds of fish and other marine life, aras of outsanding natunl beauty/

historically/heriage areits, areas rich in genetic diversity, areas likely to

be inundated due to rise in sea level conseguent upon global warming

and such other areas as may be declared by the Centnl Government or

the concerned authorities at the SatdUnion Territory level from time

to time.

(i, Area between the Low Tide Line and the HPh Tide Line.

I ibid page 74

Monltoring the Tomllnodu coqst

EOUATIONS

lf the above indicators and parameters are not meant for coastal stretches like

Kanniyakumari, then there shall be no other coastal region that could be classified as

CRZ I in the state. In hct the very singularity of convergence of three mighty oceans

on the one hand, and on the other the land area that again is the convergence point

of two different land masses is alone sufficient enough to declare the tourism zone

of Kanniyakumari as being in the category of CRZ l. The rock formations all along

the beach and the immediate sea, the uneven, steep nature of the beach, etc, demands

better protection. In addition to this there are other features like 'area of outstanding

natural beauty'historically/heritage area . . ..' that shall again qualiff Kanniyakumari in

the CRZ I category.

fnstead what the Tamil Nadu C,Z;MP has conveniently done was to give a clean

anticipaton/ clearance to allfurther mutilation of the beach. This the CZ:MP was able

to manage by not taking into consideration the protective spirit of the notification

by regulating and prohibiting activities along the coast. The planners of the CZ;MP

deliberately limited their view to the Category ll of the notification that deals with

the "developed area" that has been already substantially buik up.

The CZMP does not acknowledge the sensitivity of the area to such activities, nor

does it make recommendations for the protection and preservation of the area. By

not takinS into consideration the existing tourist, activities, the potential future

devefopmeng and being forewarned of its implications, the CZ:MP has committed a

veq/ grave injustice to the Kanniyakumari coast, the coastal ecology, and the

community living in the area. The real example of this is the new Kamaraj Memorial

that is being constructed towards the seaward side of the road. By not emphasising

the importance of this beach and ocean area unique on the whole on the face of this

earth, the narrow land between the road and the sea is being filled up with construcrion

wastes. The local authorities are unable to exercise their power since there are no

recommendations in the CZMP that they can depend upon.

These are the demonsrable, direct" results indicating punishable negligence on the

part of authorities whose primary task was to protect Kanniyakumari. This negligence

has resulted in the uncontrolled growth of constructions in Kanniyakumari. This

indicates the existence of many fundamental issues which need to be recognised and

understood, and the need for interventions into the tourism situation in

Kanniyakumari. However, in order to look constructively at the future, one needs

to consider various trends and issues of Kanniyakumari tourism in some detail.

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Tourism Trends in Kanniyakumori

The tourist traffic to Kanniyakumari is on an upward trend, recovering from last

year's political violence in the state. The series of bomb blasts in the state have

cautioned the tourist traffic, witnessing one of the all time low tourist rurnours. ln a

real sense Kanniyakumari has just three months of tourist season: November,

December and January. The present accommodation facilities are sufficient during

this period. But once the season is over, the room occupancy drops as low as forty

to fifty per cent, leaving half of the facilities unutilised. The crowded beach and roads

are no indication of this, since they remain filled, mostly with picnickers who come

in busloads from within the state and the neighbouring state of Keralam. lt is during

the peak se:Non the devotees from all over India to the Sabarimala Temple in Keralam

drop in here for day visits.

Earnings from tourism are not very high in Kanniyakumari. There are various types

of tourist with different spending patterns. They mainly are:

" The budget traveler, for whom the maximum spending per day is around 350

ruPees

The foreign traveler, who spends around Rs. 500 to 600 per day.

Business and executive class travelers, who spend Rs. 1000 to 2000 daily.

The package tourists from West Bengal are the least spending q/pe. They mostly

travel in groups, find public accommodation like dormitories, and are a bargaining

lot. The earnings from the present form of tourism are also not very encouraging to

when compared with infrastructure related investments.

Future needs and Developments

The tourist authorities seem to want to shake out of the conventional pilgrimage

image. The compulsion from the tourist industry also is the same. Five new hotels

have come up in the last two years adding up to a total of five thousand five hundred

rooms. Many more hotels are in the process of completion.

Monitoring the Tomllnodu Coosl

EOUATIONS

The department, of tourism sees its main aim as providing increased facilities and

making the place more 'attractive'. Towards this end are proposeds overall

beautification of the region, budgeted at Rs. fifty lakh and vehicle parking provisions

at the iunction of Beach Road and West Coast road. Fifteen acres of land have been

purchased for the latter purpose. The plan is estimated at Rs. One crore.

It is also proposed to have underground cables for electricity, mainly to improve the

aesthetics of the area by avoiding overhead cables. The safety of tourist is also a

consideration towards this plan. This proposal is estimated to cosr Rs. twenty lakh.

Apart from this there are plans to provide arc ligha to the Vivekananda rock.

Another plan towards the improvement of Kanniyakumari tourism is the

construction of an amusement park. This, it is felt, would attract the domestic

tourists, especially those with children to come to Kanni;akumari as picnickers,

and as travelers. lt could be that of warer sports combined with other modern

adventure tourism components.

There was a plan for a'Demonstration Campus'for the whole of Tamilnadu tourism

at the cost of one crore, which was mooted couple of years ago. This campus was

planned in order to showcase for the tourists all the tourist, destinations and tourism

activities in the State in one place. The plan for this was prepared and sent to the

Ministry. This plan remains stalled since it has not succeeded in getting approval

from the Central Ministry. The main obstacle is the CM. The government has not

given up the idea but is still pursuing it with the Central Government authorities.

The department says it has solved the water problem of the area completely. This

was done by digging open wells five to six kms. away from Kanniyakumari, and

bringing the water to the tourist area. The water supply is also available to the local

people.

The department, also feels that tourism in Kanniyakumari requires modern facilities

like upgrading the rooms and more modern gadgea like, TV, VCR, telephone, fridge

etc in the rooms. The feel that the present tourists are modern and therefore the

hcilities available to them should also be modern.

5 ln lnterview with Mr. Elangovan M.A. Tourist Oflicen Kanniyakumari, on 3ln

December, 1999

=CRZ Violotions: the hotel groups

The hotels groups feel that they are being restricted in their activities by the Coastal

Regulation Zone Notification. (CRZ). The double stands taken by the authorities

suggest bias and connivance. While they are adamant about the CRZ regulations

with respect to some, others freely violate all norms.

For example, the Shalimar groups of hotels from Thiruvananthapuram, is located

towards the landward side of the beach road. The hotelgroup has started operation

with minimal facilities in their three and a half acre plot towards the northern side of

the tourism area. The owners complain that the panchayat is harassing them even

after the sanction of license. According to the owner, the area is in CRZ ll, and the

hotel plans only to construct cottages.

At the same time there are hotels which are constructed in violation of the CRZ

rules, and operate without required licenses. An example of this would be the Seaview

Hotel, built right on the coast, in an area which would actually be a No-Development

Zone, under the CRZ. The Hotel has violated the Floor Space lndex (FSl) as well as

height regulations. Even today it does not have a license and the required clearance

from the panchayag but still continues to operate.

There are other hotels constructed violating the height and floor space index

regulations under the CRZ. They are on the seaward side of the existing road, and

are much taller than the buildings around. More hotels are being constructed in the

same stretch of land, which is the section of the beach in an around the jetty, fucing

Vivekanada rock. Adjacent to Shalimar is site of Goodlands hotels also from

Thiruvananthapuram. They are yet to begin constructions

The Sterling group also plans to operate in the area. A half-constructed structure

two stories in height is on the site. This has been so for the past three years. The

internal financial crisis of the group is said to be the cause for the delay. The panchayat

authorities claim that they have served notice to this hotel for violating height

regulations.

The remaining two properties in the area belong to a church group, and are well

maintained with no constructions visible to the outside. Both are well covered with

vegetation and coconut palms.

Monitoring the Tqmilnadu Coost

ESUATIONS

CPZ Violations by the Government

While the Hotel Groups see the CRZ as an antagonisg the Tamil Nadu Government

does not even recognise its existence, and remain unperturbed in their violations. In

facg they are setting precedents for the prirrate sector on how best to bypass the

law. The Kamaraj Memorial under construction is the best example for this. This

shall be a multi-story building constructed by the Public Work Department (PWD)

at a cost of 59 lakhs. The memorial shall be completed in April 2000. This is planned

to be a display centre of the late politician's works, photographs and also the place

where his ashes shall be kept. The construction is towards the seaward side of the

beach road adjacent to the Gandhi Memorial. Once the construction is completed

the structure shall further obstruct the view to the sea.

This area automatically falls under the No DevelopmentTone (NDZ) since it is

barely 50 metres from the HTL. The authorities claim that the area is classified as

CRZ I in the CZMP of Tamilnadu. By virtue of this hct iaelf there should not have

been any construction within 500 metres. Since the Beach road is just within 50 mts,

the government should have at least avoided any constructions towards the seaward

side of the road. lnstead the government has got clearance from the Ministry of

Environment and Forests (MoEF) for this particular construction by altering the status

of the area to CRZ ll. How the MoEF, the architect of the CRZ, abandoned its child

by permitting this shall remain as a wonder. In this conte:<t it is also worthwhile to

ponder the role of the State CoastalZone Management Authority. This is the body

whose task it is to also monitor violations and recommend action against such

violators. Needless to say, this task is not done.

The Gandhi Memorial, having been constructed prior to the passing of the CRZ

Notification in 199l, cannot be held out to be a violation. However, it is imperative

that the ecologically adverse effects of this construction are recognised, and it is in

no way considered a valid precedent to allow the constructions of further memorials,

and other buildings in the area. Currently, the land on the further side of these

memorials is the only stretch of clear beach still found in Kanniyakumari. For both

ecological and aesthetic reasons, it is imperative that this stretch be protected and

preseled, and not allowed to develop into a memorial park, with the continuous

addition of such memorials.

€

Fufthermore, these existing and upcoming constructions would block all view of the

beach, destroying the natural serenity and settings that Kanniyakumari is famous for.

These constructions are antithetical to the very conc€pt of tourism, as they destroy

that very thing the tourists wish to see. In Fact, it is in the interests of the tourism

industry, and the tourism development authorities, to ensure that such rampant

constructions are not allowed to come up. Towards this end, they should take up

not only the violations and constructions by the hotel groups, but also look into the

department and government's activities and constructions.

Local Governonce ond Authorities

The Tourism department works in close association with the panchayat, which is a

Special Grade Category with Temple City Provisions. The department invests in the

infrastructure developments and then they are handed over ro the panchayat for

maintenance and upkeep. The panchayat earns adequatelyfrom vehicle entrance fee

and similar earnings, according to the information officer.

However, the panchayat system is also not foolproof. Vested interests operate with

regard to all aspects. There is a lot of pressure for land in and around Kanniyakumari.

One such potential area for acquiring the required land would be the present

community settlements. The community is under the threat of their land being

acquired by the Panchayat Their settlements are right on the seashore, and are

therefore of great value for purposes of tourism development. However, it must be

remembered that it is of both cultural and economic importance for the local fisher

communities to live on the seashore. Displacement of the community would have

serious impacts on their livelihood and lifestyle. Without the backing of any political

party or a strong leadership, the bargaining power of the community seems to be

almost nil. This evidences the need for a further consideration of the effects of

tourism on the community.

Tourism impocts on the fishing community

The sad irony is that while the district has become very popular because of tourism,

and even people who live much further away and beyond Kanniyakumari would like

to identify themselves with the place, the community who have lived there and

contributed towards making it are saddened by what it has become. These people

feel neglected and misunderstood.

Monitoring the Tomllnodu Coosl

EOUATIONS

The interrelationship between tourism and the community could be observed here.

Pilgrims, picnickers, honeymoon tourists, foreigners and executive tourists, visit

Kanniyakumari. But none of them even realise that under the shadows of the high

rise buildings there is a community living a hand to mouth life. That the place that has

been converted for their leisure and pleasure is, in reality, the life space of the

community does not cross their minds. As one of the community members put it,

"there are people walking all over this place, yet hardly trying to understand how we

live."

The fish catch has been very poor during this year, understandably due to the overall

degradation of the coastal environment. Yet the fishermen cannot stop venturing

into the sea, since fishing is an unpredictable activity and still holds their last hope.

Most days of this year they have returned empty handed, spending the fuel cost

without any returns.

Added to this is the burden of the recent increase in the dieseland kerosene prices.

The diesel price has rocketed to Rs.15.59 in the state from Rs.l 1.20. At the same

time the subsidy of 45 paise per litre remains the same as before, when diesel cost

Rs. I f .20. Even this was much lower than the original subsidy of l0% when the price

was a mere Rs.3.50 per litre. In contrast to this, the price of fish, especially shrimp,

has not increased but has fallen drastically. Records show that when the diesel price

was Rs.3.50 the shrimp was sold at Rs.600/- per Kg. But today this has been reduced

to Rs.350/-. The community at Kanniyakumari has been part of the State-wide agitation

demanding a minimum of 33% subsidy on diesel and kerosene prices.

There are around ten thousand active fishermen in Kanniyakumari fishing village and

its immediate surroundings. The main concentration of the community is in the area

facing Vivekananda rock and the newly erected Thiruvalluvar statue. The community

lives in very close built houses, without proper facilities. There is just a mud road in-

between their houses and the sea.

Tourism development, codstol erosion and

the community

Sea erosion is rampant and alarming in the area and the health and safety of the

community is at stake. The erosion began with the building of a jetty to ferry tourists

to and from the Vivekananda Rock some time during the late 70s. This inter{erence

€

with the natural flow of the sea places severe pressures on the coastal ecology, withthe result that the sea has sarted to ingress on other sections of the surrounding

coasL Ever since then the coast is being sptematicdly eaten by the sea. As a protective

measure a number of breah,rrater walls were built into the sea. This however, did

not Prevent erosion in any way. Nearly 20 to 30 metres of shore have been eroded

by the sea, since the construction of the jetty. Further erosion can be expected,

especially with the additional pressures posed by various new constructions right on

the seashore.

Erosion also has had severe economic and financial'impacts on the community. The

outcome of this has resulted in more difficulty and financial burden on the community.

The fishing gears are now kept further away from their living space and each time

they have to fetch the same spending hard earned moneyfor hiring of transportation

for the same. The community has been pleading with the authorities to lengthen the

breahrater further into the sea on either side, but to no avail.

At the same time there is no mention about degradation of coast due to erosion in

Kanniyakumari districg in the CZ:MP. Section C: Developmenr Scenario of Tamil

Nadu Coasg sub heading: Coastal Erosion6 speaks as follows:

- - -serious erosion problem occur at a number of places along the coast,

accentuated by man made stuctures. A signifiant area is north of Madns

harbour at Kasimade - Ennore stretch.

However, there is no mention about erosion in Kanniyakumari district. At the same

time, Schemes and budget allocation of Fisheries Department exposes this omission:7

7. Anti Sea Erosion Projects:

Anti sea erosion works in Enayam and Muttanthurai Vitlage ofKanyakumari District and other sea erosion works: lgg5-96 Budget

Estimation (n Lakhs) 10.92.

6 ibid pagr,, 4l7 Peoples Policy for Devetopm)nt of Fisheries and the Livelihood of the Fishing

Community in Tamil Nadu, Page 6

Monltoring the Tomilnodu Coosl

EQUAIIONS

The budgetary provisions were for the year 19995-96, and ironically the cZMp wasalso prepared during 1996. While one department reiterates thar there is sea erosionin the district' another department of the same Sate Governmenq despite its primaryduty to record the status of the coast, conveniently do not even mendon such

happenings.

Says Mr.Casmear, a fishermen from the village "Real scarce catches, operationalcost increase and added to this is the coastal erosion, there is nobody to listen tous"

Apothy of authorities

The constant refrain of the fisher community seems to be that the authorities orpolitical rePresentatives do not have any interest for concern for them. They feel

that for the authorities, Kanniyakumari means only tourism and foreign tourists, and

the community is not at all a part of the government's considerations. There is no

concern even for their health, safety or basic human rights. A major concern expressed

by them in this context was the plight of people who have traveled abroad for a

living to the gulf countries.

There are l9 fishermen from Kanniyakumari district two from this particular village

who are languishing in the jails of Pakistan. These fishermen have been employed infishing in Dubai and were drifted to lranian water while fishing and captured forviolating the territorial waters. Handed over to the Baluchistan and later to pakistan,

they have been in prison for the last eleven months. Today there seems to be no

way of their release. The community has protested against the indifference of theconcerned authorities including the state machinery in securing their release. Theyfeel that the authorities have no inrerest whatsoever in them.

The community also feels that tourism is in no way of any help or suppom to them.

They were severely critical about the extravagance of the Thiruvalluvar Sculpture

and related Programmes of the State. The ten crore spent on the statue and another

2 crore (official figures) spent on the inauguration ceremony could have well been

invested in some productive manner so that people could have gained from it by way

of employment and livelihood opportunities.

€

The fishing community in Kanniyakumari equate themselves with the fishermen in

Keralam. They feel that their counterparc in Keralam are better off and live in much

better conditions. They feel that the State provides the Keralam fishermen with

much better opportunities and facilities. The political state boundaries drawn have

separated them on land while the seas still remain open, bringing them together.

There is no adequate political representation of the fishing community in the decision-

making bodies, and there are no other means to make their voice heard. The

community's contribution to the foreign exchange earnings through fishing and marine

export is of no value to the authorities or the politicians. There is neglect and apathy

from both the industry and the Government, with the result that the community is

at the losing end, and have no say in the developments which are taking place, even

though their safety, livelihood, and lifestyles are being dangerously affected.

In hct, so far the government has evinced verT little interest in the welfure of the

community. In the opulence of this extravagance of tourism they have just one

government middle school in the village. The other schools have been brought in

either by the church or by others from the private sector. ln all this poverty and

deprivation the focus of their concern is now their children. They see no future for

them since the sea seems no more to be the provider.

Conclusion

At the given scale of development and also the ambitious future plans of the tourism

industry at Kanniyakumari, the coast does not seem to have much future. Nor is

there any chance of an unobstructed view of the famous sunset and moonrise. The

view from the bus stand road is already obstructed by a number of constructions.

More precisely, between the Bus Sand Road and the Beach Road the skyline is

blocked by government establishments like Tamil Nadu Government Guest House,

Kerala House, HotelTamil Nadu (TTDC), Cape Hoteland Youth Hostel. Further in

this line are the new set of private hotels now under construction, namely The

Sterling Resorts, Shalimar South End Park (both under construction) and The

Goodlands Hotel, which is yet to begin construction.

That leaves the viewer with the choice to walk upto the Beach Road, which is barely

Monltoring the Tomilnqdu Coqsl

EOUATIONS

50 metres from the sea. Here again the skyline is blocked by Gandhi Memorial.

Further obstruction shall be the Kamaraj memorial under construction that will be

completed by April 2000. What is left for the viewer for thetime being is further

south, sanding on the road rushing with vehicles since from this point onwards it is

the steep stretch towards the beach. Already this patch between the road and the

sea is being dumped with waste materials.

Looking into the future, protection is possible only along this southern stretch. No

more memorials or hotels should be allowed to be constructed towards the seaward

side of the road. As the steep land gets filled with waste and becomes leveled, there

is every possibility that the authorities shall begin constructions here, initially of

kiosks and similar small structures. Once this begins within no time the area will be

covered with permanent structures. This is a regular practice in our system, and is

only expected soon in the case of Kanniyakumari.

The Tamil Nadu Government is today in a very advantageous position as regards any

environmental protection, if it desires so. The two critical portfolios of the Ministry

of Industries and the Ministry of Environment at the Centre are in the hands of

Tamif Nadu. lf these two offices are put to good use, the State Coastal Zone

Management Authority would follow in their steps. A concerted effort along with

concerned groups and the local community could effectively protect this remaining

piece of precious land. Otherwise tourism will kill tourism, and destroy in its wake

all that is beautiful and precious in Kanniyakumari.

rI

I

Ii

Panoramic view of the Kanniyakumaricoast. The Kanniyakumari

skyline compares with that of any metropolis. Also seen is the

Thiruvalluvar Statue whkh has completely overshadovred the natural

beauty of the area, as well as placing pressures on the coastal

ecology.

The Complex for the Jetty has been con-

structed right on the High Tide Line, while

the letty itself extends well into the sea. The

area in the foreground, used tradtionally by

the community for docking their boats, is

being severely eroded, as the construction

of the Jetty has forced the sea to turn and

wash ashorewith greatervolume and veloe-

ity.

High Rise buildings place extreme pressures

on the coastal environment, causing erosion

and sea-level rise, which then neccesitates the

construction of breakwater walls, as seen in

the foreground.

Hotel Samudra, which has been constructed in violation of the CRZ Notification.

View from the western side

of the Thiruvallluvar statue.

The Gandhi MandPam is

seen in the distance. This

stretch of land has now

been opened uP for tourism

related construdions, and

further construction of me-

morials, The Kamaraj Memo-

rial is one of these.

An abandoned construction, intended to be a swimming pool, The construc-

tion is right on the High Tide Line'

=

=#.--...__:: t:

-:t€

'!:.!

cF

-r.4":!?r*:t"

Sea erosion affects the community

adversely, as they are left with no

space to dock boats, or carry on fish-

ing related activities. The beach at

Kanniyakumari has been reduced to

a few metres. The houses located on

the extreme right, in the picture, are

in fact, on the main road.

The only remaining stretch of beach inKanniakumari. The Coast is being used as a

dumpyard for garbage and other wastes.

A Seawall spans the entire

shore of Kanniyakumari.

The last vestiges of coastal

flora along the

Kanniyakunrari Coast.

;,lr

Further away from Kanniyakumari, the fishing community lives in harmony with the foast and the Sea.

=-_

=MAMALLAPURAM

"...As stated in the beginning, the tourism potential of Tamil Nadu coastline is

immense. Few economic activities can be as eco-friendly as tourism. This means that

large stretches of the coastline should be classified as CRZ lll and rourism and

related activities be promoted. However, the CRZ notification places many

unreasonable restrictions on constructions permissible in CRZ lll. First, the promotion

of tourism calls for construction of hotels and related facilities and amusement centers

for tourists. The restrictions placed by the notification on the FSl, overall height,

number of floors etc. constrain severely the optimal use of the area thereby making

the whole venture uneconomic. Second, the development of water sports and

entertainment activities involving sea mammals requires some constructions to be

undertaken even within the 200 mtr. Belt. Currently, this is not permitted under the

notification. Even construction of club house or such constructions which is an integral

part of sports activities are not permitted within the 200 mtr. belt. These resrrictions

severely limit the planning and development of areas ideally situated for tourism . . . "l

This is a real issue for the Tamil Nadu government. For there are at least seven

major resorcs, including one foreign venture, planned in and around Mammallapuram,

stalled because of the regulations of Coastal Regulation Zone Notification (CRZ),

t99 t.

Tourism development and Mammollapurom:

In the wake of heated debates on the CRZ all over the country, it is only natural that

Tamil Nadu government is also a pafty to this. But while the government may have

objections on the CRZ in relation to tourism development in the state, the story of

the coastal stretch from Chennai to Mamallapuram is quite different. With a very

long history of coastal protection to this area that the government itself has mooted,

the above document is completely silent about it.

I lssues Relating to Tourism Promotional Activities in the Coastal Zone Areas, page-2,

Department of Tourism, Govt" of Tamil Nadu, Chennai

Monitoring the Tomilnadu Coos/

EOUATIONS

Governments have a very short.memory of their own doings. For, Mamallapuram as

a place archeological and historical importance, has been the centre of consenration

since decades. In order to convert it into a beach tourism iiestination, steps had

been taken to control development" and in fact, ban all activities and constructions

along this coastline. lt was also noted that to preserve the scenic importance of the

place, regulations be introduced in and around Mamallapuram. This history goes

back to the Government Order of Public (Tourist) Department of 1975. The period

must be taken note of, as it is long before the present debate of coastal protection

had even been thought of. lt is important that the full text of the GO be made

available:

TOURISM - Development of Madras - Mahabalipuram coastline -implementation of the suggestions of the United Nations Development

Programme team of experts - construction of Buildings along the

coastline banned - orders - issued

PUBU C nO URTSM) D EPA R TM ENT

G.O. Ms. No.3l98 dated 7.10.75

ORDER:

The Government proposes to develop the Madras Mahabalipuram

coastline as an international beach and tourist resort as suggested by

the United Nations Development Programme team experts. This team

has also recommended that the Muttukkadu Backwater area shall be

preserved as a National Park Preserve.

2. Construction of any building including f'actories, institutes, etc. will

look incongruous and will spoil the coastline and will thus damage all

promotionalefforts of this area as an international beach resort.

3. The Government, therefore, direct that no construction of any kind

should be put up between Thiruvanmiyur and Mahabalipunm of areas

bounded by Buckingham Canal on the west and By of Bengal in the east

and Heads of Departments are reguested to co-operate towards this

obiective by not permitting constructions on the coast and referring

them to the Government in Public (Tourism) Department.

€4. The director of rown and country phnning and other Hads ofDepamnents are reguested that all construction of building plans in thisarea may be first referred to the Director of rourism and obain his

prior cleatance. The Director of rown and countty ptanning shouldacknowledge receipt of this G.O.

/By order of the Governor/

/True copy/

P. Sabanayagam

Chief Secreary to Government

There is also another significance to this order. The order was in accordance withthe suggestions of the United Nations Development programme team of experts.

And later, considering the historical and cultural importance of the Mamallapuram

and the shore remple, the site was declared as a world heritage in 19g5. TodayMamallapuram is one of the | 3 world heritage centres declared by the UNESCO in

India.

This order was subsequendy clarified by Government orders dated, 9.4.76 and25.6.76

which exempted a number of villages from this ban. The reasoning for this was thehardships the villagers around the area had to 6ce in constructing rheir houses. But

even then, it was exclusively for housing under Housing Neighbourhood Schemes.

All other kinds of construction were even then banned.

By 1985, the downhll of the coast had begun. The ban order, which was relaxed infavour of the villagers earlier, began to get diluted. The government order of the

Housing department GO No.270 dated 16.3.85 gave directions to residential

developments within 500 metres from the high water mark. The order also stated

that:

...in dte land zoned for open space recr@tional usq deveropments should

not be banned completely but developments relating to recreation

allowable in the Development control rules should be permitted, afterconseryation of seashore.

But the order also gave General Norms like digging of wells and disposal of sewage

etc. Of this norm number one is noteworthy:

Monitorlng the fomilnodu Coost

EQUATIONS

No construcubn or development ofany kind shoutd be permitted in the

sand beach irrespective of its width because the sand and beach is a

land-sea interface.

By this time the zonation of coastal stretches and regulating activities along the

coast had already begun. The Coastal Regulation Zone Notification was underconsideration. Subsequently on December 15tl' 1990 notification inviting objections

against the declaration of Coastal Stretches as Coastal Regulation Zone (CRZ) was

published. This was followed by the now much discussed and hated notification

dated 196 February, 1991.

But even prior to the draft Notification dated l5s Decembet 1990, guidelines forbeach resorts and hotels had been issued bythe Departmentof Tourism, Government

of India and sent to all tourist offices and departments. (Letter No.l9 TH lll/l/90dc | 0.7.90 from Ms. Asha Malhotra D+uttl Director General, Department of Tourism,

Government of India) This letter corresponded with the MoEF guidelines for beach

resorts and hotels vide F.No.2 -120156190 - LA.lll.

The department of tourism letter was very explicit, it sated:

To promote the growth of beach tourism in the country, the following

decisions have recenrly been taken: -

l) The existing limit of "No construction Zone" for beach resons/

hotels of 500 metres from the High ride Line has been reduced to 200

Metres.

What happened since the l99l Notification is common knowledge. The industry

was unhappy with even the 200 metre No Development Zone and lobbied with the

central Sovernment which resulted in the setting up of the Vohra committee on

January 9, 1992. The committee pronounced its findings dye.ar later, that 200 meters

should remain only on the comparatively fragile sandy beaches. However relaxations

could be permitted on a case to case basis. This was challenged in the Supreme

Court.

€

It is note wofthy to look into what the industry felt at this stage. Mr. KK Kumar ofFederation of Hotels and Restaurants Association of lndia said: "When the slogan

for beach tourism the world over is lump to the seafrom the lobby', how can you

keep hotels away from the sea in lndia.'2

Now the Chief Minister of Tamil Nadu is also speaking the same language as the

Fedention of Hotels spokesman. All the precautions and conservative measures

followed thus far are obliterated. A look at the coastline from Chennai to

Mamallapuram today would reveal all conseryation measures have gone with the

wind.3 The entire stretch up to Muttukkadu is a built-up area today. Pleasure houses,

tourist and water sports constructions, institutions, industrial aguaculture hrms,

housing etc. occup)l this coasal stretch. Ground water depletion has

amounted to salinity intrusion in this region. The clause'No consrruction or

development of any kind should be permitted in the sand beach irrespective of its

width because the sand and beach is a land-sea interhce' has not been maintained.

There are constructions that e*end up to the high tide line.

The lure for foreign exchange has overruled protection of the most fragile and

productive region, the coast. The government and tourist lobby want to do away

with the notification even at the erosion prone Mamallapuram. Historically it is

evident that this area is under the complex and dynamic effects of the sea.

Archeologists, historians and the local fishermen believe that part of the ancient

port city and temple lie submerged somewhere underwater even as centuries have

gone by. Considering the way the sea interacts this is a definite possibiliry. What

remain today are just a few remnants of a very rich, bygone era. Instead of protecting

it from further destruction by keeping away all constructions and hazardous human

intervention, the Chief Minister writes to the Central Ministry that the CRZ

notification is detrimental to tourism development. (See Annexure)

2 Coastal Zones: An Overview EQUATIONS, Bangalore, 1995.

3 ECR Phase l, A Preliminary Survey Report Tourism Related activities, Document

submitted to the expert committee constituted by the MoEF to review the

development activities along ECR phase l, EQUAflONS, Bangalore, 1999.

Monitoring the tqmilnadu Coos/

EOUATIONS

It is also interesting to note the priorities that reveal the state's commitment to the

environment. In the same letter the Chief Minister writes that the High Tide Line of

the state's coastal stretch is yet to be marked, but it is quite an expensive exercise.

His office has estimated the cost involved as being to the tune of Rs.2 to 2.5 crores,

after discussion with the Chief Hydrographer. But the funding is expected from the

MoEF. lt may be this is a procedural matter between the ministries. But it is worth

noting that the making of the Thiruvalluvar statue at Kanniyakumari has cost the

Tamil Nadu government Rs.2 crores, apartfrom lakhs thatwas spend on inauguration

of the same.

The argument to do away with CRZ in this region under the pretext of tourism

development is merely eyewash. Ever since the East Coast Road had been built the

pressure has mounted on the government for all kinds of developments including

factories and housing complexes on the seaward side of the road, which activity is

actually prohibited. lf this ban is lifted under the pretext of beach tourism, the remaining

stretches up to Kanniyakumari could be open for developmena. This has been proved

in the just completed first phase stretch, from Chennai to Cuddalore.

Coming back to the Mamallapuram stretch, the earlier Government Orders do not

specifr what kind of beach tourism development was envisaged for this area. But

surely 'Construction of any building including hctories, institutes, etc. will look

incongruous and will spoil the coastline and will thus damage allpromotional efforts

of this area as an internationalbeach resort'is applicable to tourism constructions

also. lt is not the nature of the institutions but the kind of constructions that matters.

Multi-storied tourism constructions would look as incongruous as any other such

concrete monoliths, and would have an equally detrimental effect on the coastline.

This undesirable phenomenon is precisely what is happening along the Mamallapuram

stretch.

From the Government Order of 1975 we have travelled a long way, More scientific

knowledge about coasts and oceans is available today. The need to protect coasts,

and notto repeatthe mistakes committed earlier, is an accepted factglobally. Though

not up to the international mark, India has also become aware of these hcts, and the

attempt for corrective and precautionary measures is the basis of the CRZ. lt is

based on this understanding the State Governments were asked to prepare their

Coastal Zone Management Plans (CZMP). The CRZ notification has specified the

€

kind of constructions, the floor space index and the height regulations. But the

Sovernment does not want to stick to any of these, of which fact their own documents

are the proof. What is been evident is that the Tamil Nadu government neither

want to adhere to their own past history nor the present laws which they themselves

have agreed to. lnstead they want to create their own laws and regulations, to suit

the tourism and industrial pressures, disregarding the protection of the coast.

The current Government trend, to develop tourism in Mammalapuram disregards

not only the environmental impacts of development on the coast" but also disregards

the impacts of tourism as an activity, in itself. Tourism is held out as an activity which

is eco-friendly, employment generative, and financially sound. The fact however is

that tourism has its impacts on an area, its environmeng and most importantly, the

communities living in the area. These impacts may be direct or indirect" and must be

studied and recognised before any model is developed to promote tourism, and

more so before promoting tourism so enthusiastically. In this context" it becomes

important to consider the effects of tourism in Mamallapuram as an area, and especially

in the light of its declaration as a Special Tourism Area.

Geogrophicol location and historicol importance

Mamallapuram - the authentic ancient name Mahabalipuram was changed through a

government, order in 1957 - is in Chengalpattu MGR District. lt is located along the

coast of Bay of Bengal at a distance of 58 km south of Chennai. Mamallapuram was

one of the major seaports under Pallava rulers of South India. Their reign is traced

back to the third to fourth century.

The present Mamallapuram Township was constituted under the Tamil Nadu

Panchayat Act on l. | 1.64. The same year it also attained the status of a Health

Resort with the area namely Mamallapuram village Panchayat and Poonjeri Village

Panchayat within the limit of Thirukalikundram Panchayat Union. This Township is

called as " Panchayat Township". Apart from this, the development authority called

Mamallapuram New Town Development Authority has been constituted exclusively

for Mamallapuram Township, comprising of Mamallapuram and Poonjeri Revenue

Villagea.

a Mamaflapuram Township Chengalpattu M.G.R. District, General Particulars (undated

document from EQUATIONS Documentation)

Monltoting the Tamilnodu Coosl

EOUATIONS

The seacoast from the outskira of Chennai to Mamallapuram is one of the finest

beaches in India. There are a number of ancient temples, sculptures and monuments

spread along the beach and township. lt was these magnificent monuments, their

aesthetic beauty and centuries old history, that aftracted tourists to Mamallapuram.

Their historical importance contributed also in declaring Mamallapuram as one of

the l3 World Heritage Centres by the UNESCO in 1985. Government of lndia, in

199 | declared Mamallapuram as a Special Tourism Area as part of the tourism

ministry's view to provide a major boost for development of tourism in the country.

Modern Tourism in Mohabolipurom

Pilgrimage had always been a part of the Tamil culture. Gifted with one of the oldest

history and culture of powerful kingdoms, Tamil Nadu is a land of temples. Naturally,

the people in the state as well as from neighboring states traveled to these temples

as an annual ritual. The temples and the sacredness attributed to the sea thereby,

has attracted pilgrims from all over India to Mamallapuram. The sculptures and the

sophisticated temple architecture served as a living university for students of arts

and researchers of history. To familiarise themselves with ancient culture in a tangible

form, students from all over the south lndian sates flock to Mamallapuram. This is

apart from the casual picnickers and visitors. All this together paved way for the

modern form of tourism in Mamallapuram.

As the number of tourists increased the need for facilities and infrastructure was

felt. Shack and small refreshment stalls on the roadside were established. Later

prominent hotel groups got interested in Mamallapuram and the neighbourhood.

Subsequently Chennai based entrepreneurs also started small lodges and restaurants.

Today there are around 150 tourism related establishments at Mahabalipuram beach

and surrounds. Six beach resorts,40 lodges, 30 restaurants and 60 curio shops make

up this number.

The tnnsformation andgrowth of ITDC hotel, Temple BayAshok is agood example

to m@sure the changes that have occurred in tourism development at Mamallapunm.

Ashok is one of the oldest hotels in Mammalhpunm. This government of lndia

undertaking sarted its opention t s a Tnvelers Bungalow in l95l with bare minimum

facilities. ln 1963 ITDC was constituted and the Travelers Bungalow was given a full-

€

fledged hotel status. lndividual cotages were constructed in 1973 and 1978. Along

with these modern hcilities like air-conditioning, swimming pools, health club, chat

restauftrnts and live culturalpetformance, etc were aided. Today Temple BayAshok

is a three star catetory luxuty resort with 72 beds. The ITDC officials are aware ofthe intensive campaign for more tourist facilities in Mamallapuram. Further

developments and new hcilities are awaiting cleannce from concerned authorities.

Temple Bay has 35 cen* of land adiacent to their existing property. They intend to

convert this land into a mini golf course, and add l7 more cottages, with a modern

health club.

The government on their part try providing more infrastructure support to the

industry like bus stands, road improvements, vehicle parking and drinking warer

facilities.

As part of tourist attnction the tourism department organises cultural programmes

at Mainallapurzm. The dance festivalof Mamallapuram duringJanuaty and the Pongal

festiual are such initiatives of thegovernment There is also the state-run Poompuhar

Handicnfts and Sculpture College.

Tourist season in Mamallapuram begins in August and continues tillJanuary. From

December 25s to January the special attraction at the place is the Mamallapuram

Dance Festival. Majority of the tourists are picnickers coming in busloads from within

the state as well as the neighboring states. During the season the number may go as

high as 5000 per day. Domestic tourists from North India visit mainly as packaged

tours, with a sizable number of honeymooners. Foreign tourists are normally seasoned

tourists, repeated visitors to the place.

The role of the Tourism Department in Mamallapuram Tourism

The department of tourism at Mamallapuram is still elementary in their function.

Their role is still limited to that of a tourist information centre. The Special Grade

Officer could provide information already available from any tourist brochure. All

records and statistics are kept in the Tourism Department, office at Chennai, according

to the Special Grade Officer in the office.

Monitoring the Tomilnodu Coosl

EOUAIIONS

Though Mamallapuram has been declared as an STA so far no initiatives have been

made in this regard. The local office does not have much knowledge about the

concept of STA. Neither do they knew about the evolution, nor the parameters and

conditionalities that constitute an STA. More hotels and more hcilities to the tourists

are their concern.

Like all concerned in tourism development, the office here also feel that the CRZ is

an obstacle to tourism development. They see more tourism potential for

Mammdlapuram. The demand would be more than what it is today if Chennai airport

gets more chartered flights. Tourism in Mamallapuram also needs diversification

according to the officials here. Apart from the open beach and sea there is no

recreation for children here. Water sports and theme park may be interesting for

children.

Construction of further hotels and resorts along the beach shall not create problems

for the community, according to the tourist officials here. They say that even in the

long run, space in the beach may not be an issue for the community since they could

be relocated. There is enough land available with the Tamil Nadu government. For

example, Alavanda Trust - a Government of Tamil Nadu undertaking has 1000 acres

of land between Nemuli and Devengiri. Future community land requirement could

be met from this trust if such a situation arises. However it is the Mamallapuram

New Development Authority that shall look into such matters since all developments

are now undertaken by them. The local community however, needs more awareness

in tourism and related matters.

What is felt here with the tourism department, is the need for a holistic outlook in

its functions. The conventional working and attitudes have not changed in accordance

with the development in tourism. Little has been done to project the unique status

that Mamallapuram enjoys as a world heritage centre. Mamallapuram is also a Special

Tourism Area. The cultural as well as the historical importance this great Temple

City enjoys is not impressed upon the visitors. Even in the new developments planned

here there is no thought about having an)rthing by way of a demonstration centre or

permanent exhibit, which will enable the tourist to view this magnificent, human

contribution of a bygone era with a non-tourist mental set up. lt would germinate

seeds of protection and preservation, question unwanted developments and features

of mass tourism in the minds of visitors, especially the younger generation.

€

Locol Administrotion and Tourism Development inMomolloPurom

There are a number of administrative bodies that look into the overall development

of Mamallapuram. The structures are well defined and work in harmony. The

Panchayat Township, with a committee reconstituted as per G.O. Ms. No. 47 Rural

Development on 10.3.1993, has ten officials and l3 non-official members for the

period of five years. There is also the Mamallapuram Local Planning Authority with

the district collector as the Chairman. Apart from this is the Mamallapuram New

Town Development Authority (MNTDA). This was constituted exclusively for

Mamallapuram Township. MNTDA is headed by Member Secretary, Director of

Town and Country Planning and is responsible for all developments at Mamallapuram.

Their jurisdiction is upto Devanagiri.

Of these three agencies it is the MNTDA that is the referral point for development

in the tourism area of Mamallapuram. The working arrangements among MNTDA

and the other structures are fairly defined including sharing of tourism related revenue.

Vehicle entry fee is one of the main revenues to the township panchayat. This

revenue is shared between the MNTDA and the township panchayat. Of the total

vehicf e entry earnings 5 l% goes to the MNTDA and the balance 49%to the township

panchayat. All new and recurring revenue related to development is to the township

panchayat. A development charge is levied on every new item of development, of

which l% is given to the MNDTA as a one time payment.

The existing master plan for Mamallapuram is more than five years old and is

redundant. Taking into consideration the new tourism developments and the thrust

to promote and earn more from tourism, there are designs to draw uP a new

master plan. The MNDTA also voices the concern of hotel industry that the CM is

restricting new large ventures from coming up in Mamallapuram. There are already

existing regulations and prohibitions for constructions around the shore temple

imposed by the Department of Archeology. Also there are other restrictions imposed

by the Kalpakkom power plant. But this does not directly affect the tourism area.

There are several new facilities and developments that MNTDA is undertaking. This

is mainly based on the tourist inflow increase and complaints and suggestions from

the local enrrepreneurs and transport owners. MNTDA sees the revenue generated

from these as additional income to the panchayat.

Monitoring the Tomilnodu Coost

EOUATIONS

The following are the new development and investments plans:

l. Theme park near the shore temple: 28 .43 lakhs

2. New Bus stand in 9 acres: 80 lakhs

3. East Raia street improvemenc 20 lakhs

4. Vehicle parking loc 23.69

5. Amusement park for children: 27.95

6. Pay and use toilec 09.85

The need for a new bus stand has been fek for long time since the vehicle numbers

have almost doubled. The area would reguire more toilet hcilities, which would be

added in future.

The MNTDA do not have much idea about the STA and could not comment on the

concept. These things are tovernment - both centnl and state government -decisions. They do not feel that this will conflict with the concerns on which the

MNTDA is presently proceeding.

The Hotel Industry in Mamallopurom

Hotel industry is raging a war against CRZ. Mammallapuram being an international

tourist destination needs rules and regulations that are eaq/ to implemenq according

to the hotel industry. The need to protect the coast is valid, according to the Temple

Bay Ashok officials. But this cannot be at a blanket level. Site and area specific needs

and reguirements have to be considered. Mamallapuram is a growing tourist

destination. The present fucilities and bed availability is insufticient. Which means

there is a need for more resorts. The contribution of tourist economy is well

recognised today, therefore a more considerate environment for development of

tourism is expected by the industry.

There are around half a dozen hotel groups who are pressurising the government ofTamil Nadu for relaxations in the CRZ. Apan from the CRZ the Tamil Nadu

govemment is also caught up in another commitmenc vvhich, in retrospect, it considers

a mistake. While the East Coast Road project was being cleared by the Ministr'y of

Environment and Forests (MoEF), dte government has agreed to not permit industries

and tourism projects on the seaward side of the road. (The East Coast Road is a

highway proiect that shall run along the entire eastern coasbl stretch of lndia from

Calcutta to Kanyakumari. The Tamil Nadu government was the first state to take up

€

this proiect. The first phase between Chennai and Cuddalore is already constructed,

funded by the Asian Develspment Bank (ADB). The road proiect nn into rough

weather since there were drzstic environmenal impacts that such a highway would

create. The Non Governmental Organisations, environmenalists and the local

community had put up an effective fight against this proiect. When the cleannce for

the proiect was almost coming to a standstill, the Tamil Nadu government gave an

undertaking on which the profect was cleared. One of the conditionalities of this

undertaking was that there shall be no permission granted for setting up of industrial

or tourist resorts towards the seaward side of the road) Mamallapuram being located

on the seaward side of the ECR, is subiect to this condition. This condition is in

addition to the already existing CRZ regulations. According to a document prepared

by the Department of Tourism this has been highlighted seeking relaxation, since

these conditionals were detrimental to tourism projects:

The following Tourism Projects in the State are pending for the past

several years due to the restrictions imposed under condition (Vll)

accompany the clearance given for the East Coast Road.

M/s. Gem Stone Beach Resors fut. Ltd. Chennai.

M/s. Jade Resorts Pvt. Ltd., Chennai -8.(A Club -cum-Resort (with 32

raw cottages including Bowling, Games Rooms, Health Club, Conference

Facilities, Swimming & Open Air Restaurant) at Nehmeli Village,

Kancheepuram Dist)

M/s. Sporting Pastime lndia Ltd. Chennai-2 Palmyn Golf & Country Club,

Mudaliyar Kuppam, Kancheepunm Dist. (95 Kms on East Coast Road

between Mamallapuram and Pondicherry.

Ms. Cereus Holding Ltd., Auckland, Newzealand. Five Star Hotel,

Mamallapuram & Convention Centre, Chennai

M/s. Chandrakala Resorcs Hotels Pvt. Ltd., Chennai

Ms/Amusement & Picnic Resofts (P) Ltd., Chennai- l.

Ms/. Vivek Farms and Resorts,Mugiyur Wllage, Cheyyur Taluk,

Kancheepuram District - Five star hoteland 100 rooms beach resort

complex in | 64 acres of land.

This does not mean that constructions have come to a standstill at Mamallapuram.

For example, Hotel Sea Breeze is under construction near the Shore Temple. The

construction will full well within 200 mts, which is a No Development Zone. According

t.

2.

5.

6.

7.

Monitoring lhe fomilnodu Coosl

EQUATIONS

to the MNTDA, this construction is at 230 mts from the High Tide Line. The hotel

group has applied for permission to the localauthorities.

The site proposed for the developmental activities of Temple Bay Ashok is also in

the No Development Zone. ln fact the site is right on the High Tide Line. The

compound wall covering the land was washed away along the side that faces the sea

recently.

In the adjacent Kovalam, Fisherman's Cove of Taj Group of Hotels is also hcing the

perpetual wrath of the sea. The properc)' facing the sea is under severe erosion.

One way to restrict constructions would be by expanding the restrictions the

Department of Archeology has already imposed in this area. At present constructions

within 100 metres around the shore temple are prohibited. 100 to 300 meters are

considered as regulated area. Any construction requires permission from the

Department of Archeology. Constructions shall not also exceed the height of 7

metres.

Outside the tourism area of Mamallapuram the beach is not crowded with heavy

constructions like the Chennai Mamallapuram stretch. This is not because the

government had been sticking to their earlier policy of keeping the coastal skyline

clear and protecting the coastal ecology, but a rather peculiar re:son. lt is ironical

that one hazard helps prevent another. The Kalpakkom Atomic Power plant has its

own restrictions. lt has set its own regulations for construction around the plant. All

constructions are prohibited around a 1.6 km radius of the plant, which is termed as

the sterilized zone. Beyond this another five kilometre zone termed as controlled

zone is maintained, so that all industrial activities leading to undue growth of population

is restricted. Applications for new constructions and modifications have to go through

a three member screening committee and obtain an NOC (No Objection Certificate).

Mohobalipurom in the CZMP

The CoastalZone management Plan (CZMP) prepared by the Tamil Nadu

government has the following reference on Mamallapuram.s

s CZM7 page 45.

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lmportant land Marks Mamallapunm

This is a place of architectunl interest and an impomnt tourist centre.

The shore temple, monolithic Chariots knownas'Five Rathas', Ariunas'

Penancei 'The Krishna Mandapun"Mahinsun Mandapami 'The Elephant'

etc., are magnificent pieces of sculpture. The place is also known as

Seven Pagods and along with the sea shore and its temple provide a

beautiful picnic spot abounding in natunl beauty. A tnining centre for

sculpture has been set up by the government here and students are

recruited for tnining. Number of holiday resorts both by government

and priuate has come along this stretch.

The CZMP further adds;

Sheet No.4

The village coming on the East of Buckingham canal is included in the

Madns Metropolian area. The area west of Buckingham canal is included

in the Mamallapunm Local Planning Area. This has been marked as

Coasal Regulation Zong because of the Pallilcannai Swamp. As old

Mamallapunrn roadpasses through this stretch, which is witnessingnpid

development due to restriction on the East Coast Road, fixing of 500 M

as regulatoty zone from the water line may hinder development. The

regulatory disance is restricted to 100 H and tlte area has been classified

as CRZ lll

Sheet NoS

The Mamallapurzm Township area comes in this sheet and part in sheet

No.4. though the Buckingham Canal does not join the sea, there has

been sak march on the west of Buckingham canal. As it is a tourist place,

number of holiday resorB have come up both by private and public

tourist agencies. The disance from the march land has been restricted

to 100 M as little area would be awilable for development of 500 M is

to the left of the sak march. The entire belt has been classifred as CRZ

lll, except for the southern portion covered by Palar Estuaty which has

been classified as CRZ l.

Monltotlng the Tqmilnodu Coost

EOUATIONS

There is no reference to the whole history of protective measures these areas has

enjoyed right from 1975. Why such a protective measure was mooted and has the

area gained an)rthing from such measures. Or subsequent'dilutions in favour of

devefopment have deteriorated the situation. The CZ:MP is vocal in writing about

hindrances to development and therefore takes arbitrary powers in their hands. But

the same attitude is lost where areas need protection. There is also no mention of

the threat to the Shore Temple and therefore protective measures. There is no

mention about the status of the beach, the sea erosion and loss of property of

Temple Bay Ashok or the Fisher Men's Cove.

Mentioning these facts is crucial. The CZMP is a document that has to be referred

on each and every time when some thing is planned along the coasc lt is based on

this document various authorities involved on the coast and the local community

could do anything on the coastal stretches. By not mentioning these crucial ecological

factors the makers of the C,Z;M.P and the Tamil Nadu government had done great

injustice to the coasts of Tamil Nadu.

Seo erosion in Mammollopurom

This 8s century Pallava port town is a region subject to submergence under the sea.

Parts of the old port and temple have gone under the sea in the p:rst centuries.

These dynamics still continue. The shore temple is under severe threat of erosion.

It was only in recent years that the government h:rs build protective stone walls

around the shore temple from further sea erosion. The wall may protect the temple,

but the sea cannot be harnessed by these mortal activities.

The dynamic of the sea-coast interaction is such that its natural patterns which may

be not acceptable to human beings. When these dynamics are obstructed, say in the

form of a huge sea wall, the sea turns to enter land at a point, which may even be

several kilometres away. But here the velocity of the sea would be more severe

than atthe original pointorareawhere itwas obstructed. In the case of Mamallapuram

this change in flow of the sea is evident nearly a kilometre away, precisely where the

Temple bay Ashok is located. lt has washed away cottages and the Bharathanatfam

stage and encroaches the area, as if in vengeance of the natural flow which was

denied on its other stretch. This still continues. But neither the government of Tamil

Nadu nor the Hotel Groups accept this as a reality. While the temple needs protecdon

iFthe tourist industry should also realise that their constructions need to be further

removed from the sea. The best way to interact with the dynamics of the sea is ro

allow it room for its activities. The ocean has its own logics and dynamics. By allowing

space for ocean-land dynamics many of the major hazards we face today could be

avoided.

Further away, Fishermen's Cove of the Taj Group of Hotels is also hcing a similar

situation as Temple Bay Ashok. Trees that, adorned the boundaries of their propercy

have been washed away, along with the entr), gate. The hotel group is desperately

trying to prevent further erosion by dumping sandbags and boulders.

Both these resorcs were constructed prior to the CRZ that is discussed today, and

therefore cannot be held liable on legal grounds. But the writing is on the wall that

lumping from the lobby to the sea'is not practical along this coastal stretch. The

Hotel Groups and the Tamil Nadu government need to learn lessons from the

mistakes already committed.

Community ond tourism

There are around 150 fisher families living on the stretch of beach between the

Shore Temple and Temple Bay Ashok. This is the proper community settlement in

the tourism area called Mahabalipuram Meenata Pakuti(fishing village). Their houses

are built very closely and are largely thatched and near shore. The appearance given

is that of a poor settlement. There are a number of small restaurants and lodges

adjacent to the settlements. Hotel Sea Breeze when constructed shall be the large

resorc closest to the settlement.

The catamarzns of the community are beached on the immediate coast. Repair and

mending of nets are done of the coast itself, without heed of the picnickers and

foreign tourists walking among the boats and spread-out nets. Occasionally they

chat with the trinket sellers or some tourist who come to bargain for a ride in

catamaran to the sea. Further on the beach are the pony riders and still further the

sea-bathing tourists of Temple Bay Ashok.

In general, the fishing community has nothing to do with tourism. Daily encounters

with hundreds of people in their working and resting place have made them immune.

Monitorlng the fqmllnadu Coosl

EOUATIONS

Earlier tourists used to walk semi-nude through this area, and the community was

forced to intervene. Now there are no such complains. In hct the community

keeps a watch that the daily picnickers do not harass the toorists. There are even

incidents of tourists, including women, spending the night on the beach.

The community has veq/ strong bonds among them. They look at tourism as an

external activity, where they pay little heed to what happens. There are no fisher

women involved in tourism activities at present, nor do they want their children to

be part of it. They are well aware of issues like nudity among foreigners and vouch

that they shall react to it if it reappears on their beaches. They have done so earlier

and say that both tourists as well as authorities are aware of their position. Similar is

their attitude towards drugs and prostitution. They affirm that no such activities take

place in the section of the beach where they have their presence.

The community is not directly benefited from tourism activities. Large hotels do not

make any purchases directly from them. Instead they depend on fish traders. The

price of fish has increased but the increases benefit only the traders and not the

community. Occasionally some tourists hire their boats for sea trips. But this is only

on request from the tourists.

There were instances of male members of the community employed in hotels as

security personnel. But an incident at Temple Bay Ashok compelled all the three

working there to resign from their posts. This started when Temple Bay Ashok

obstructed their passage from beach to the road by construction of a compound

wall in around 37 cents of land, which the hotel possessed. The land was an open

space without, fencing. As part of the hotel's new development plans, the entire area

was fenced offwith a compound wall. This resulted in obstruction to the community

from walking to the road and resulted in tussles with the hotel management. The

compound wallwas within 50 Mts. of the HTL. During monsoon thewallwas damaged

at some places by the lashing waves. The hotel management felt that it was the

community doing. One of the security personnel belonging to the community

overheard a telephonic conversation to this effect and immediately walked out of

the hotel never to go back to work again. The rest of the community members also

followed. Later the management themselves were witness to the rampage of the

sea when large portions of the wall was washed away.

€

The community is aware of CRZ regulations. But do not seem to be very concerned

about the same. The reason is obvious, as they do not have the means to construct

large houses. They feel the regulation is not adverse to'them. At the same time they

are aware that further spreading of hotels in beach will affect the land requirement

as the community expands. The land price in the area is also increasing.

It is evident that their settlement area is slowly getting crushed between large

constructions. The new resort under construction, followed by smaller ones, already

existing on one side and the proposed Temple Bay Ashok s extension on the other

side, shall certainly limit the space for additional expansion of the community housing.

Once these hotels start operating, it shall also curtail the community's free movement

on the beach. Tourists would then remain stationary in one place for a while, rather

than only pass by, as is the case now.

Tourism ond socio-economic issues in Momallopurom:

on oventiew

Tourism in Tamil Nadu, like anywhere in India, is yet to come to terms with reality

of the destination where they are located. The argument for endorsing modern

tourism development in India was rooted on two basic principles, as per the Tourism

Policy Document, of 1997. One is on the contention of economic development; i.e.

earning foreign exchange, and the other is employment generation, which includes

women and other underprivileged communities. How much of these are met is

often researched and talked about, especially the former, in relation to foreign

exchange and tourism earnings. But what is not being looked into, and the department

and the industry also do not want to focus on, is how the community and environment

have lost out because of this development.

Unmindful considerations of environment and the fragile ecology, change in land use

pattern and ownership, privatization of common propefty, denial of access to

resources etc are direct impacts of the present model of tourism development.

Further to this are hctors like loss of employment and traditional occupation, price

increase in land and essential commodities, scarcity of natural resources like water

and fuel and along with these the impacts on the cultural and traditional practices of

the community. The present form of tourism does not address any of these effectively.

Monitorlng the Tomilnodu Coosl

EOUATIONS

ln general the experience in Mamallapuram is also not different. The local communiry

who was earlier engaged in fishing, agriculture and also in sculpturing is slowly moving

away from these. Especially the younger generation is looking forward to easy money

while the older ones are still trying to resist.

Apart from the fishing community who are not involved directly in tourism activities,

there are a sizable number of people especially women trying to live out of tourism.

Mostly these are trinket sellers, vegetable and fish vendors. But most of them are in

debts. And if the tourist turnout is low they are unable to pay the loans they have

taken for their trade. Established shops are mostly by outsiders.

Prostitution of both adult and children are found in Mamallapuram. Women involved

are from nearby areas and mainly cater to the domestic tourists but also to foreign

tourists, to certain extenc The authorities claim that they have been able to control

child prostitution which was rampant two years ago. Local groups also were part of

the campaign against this. lt was the foreign tourists who were involved in child

Prostitution.

Like all beach tourism destinations, Mamallapuram is also a centre for drug peddling.

In fact, there are a sizable number of.people who visit Mamallapuram for drugs. lt is

difficult to trace drugs and child prostitution since these are done in utmost secrecy,

unlike adult prostitution, which is visible and evident.

Conclusion

All these show that tourism development needs a totally new outlook The

transformation from a pilgrimage centre to a mass tourist and pleasure destination,

and the related changes has to be understood critically. Along with this, the transition

from the protection the coastal stretches enjoyed earlier, to the request of the

Chief Minister for relaxations, also needs to be scrutinized. The state may earn

foreign exchange but this cannot be at the cost of destruction of environment and

lives of local community. Tourism policies need to address these questions, especially

where it has been demonstrated that the STA concept bears more malady than

value.

Tourism should be considered as an activity that shall support and protect the

environment and economic as well as culture and dignity of the local community.

llD[ HotelTeaple Bay Ashok has akeadry lst some eonstruetions to soa ercbn, and pt eontinreto hriH abng the High lide Line, (beh-*) The Hotel has acquked the hrd for the

eonslrrxlion of more eo-ttage and dewlosnent of a golf eourse.

.:,:-, :j..::

ff

Adjacent isthe Cqnmunity fufilement at FtarnmaHapJram, l'fieenava Fakuti. t{.trat hastourisrn

Contrifuted to their: lives?

,*t=

= e-E riiiB^+

(Abore) Garbage cluttersthe area uound the Shore Temple

(Behtr) TIte Kahqkkam lluchar Phnt, vishle h ttn backEo.nd, has served to protect some areas of the Coa$, as it

reguhtes corstrwtiom ln the area arand it. Seen abo is tln dense, natwal coastalt egetatkn srranndrg the Fnt

nnamallapuram b€ach. T}re shore

tem,pte is seen in tb diiistamce,

along witft the seawal,l brailt to,

protect it fror,n tlp sea erosionrampant in the areaXn the f,ore-

groud is the atrea uaditiona,l,lyused by the fishing corm,rmunity

to dock their boats.

(Above) Tai Fisherman's Cove. ln the foreground can h seen the remains of the earlier wall, which was washed away I the

sea, despite which the Hotel continues to construct in such proximity to the sea. The entire area is ocremely prone to erosion.

have already begun in this estuarine area.

(Below) HotelSea Breeze, which is being constructed in violation of the CM Notification.

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Special Tourism Areas

The concept of Special Tourism Area (STA) emerged frbm the need to boost tourism

as an economic instrument. This was duringthe beginningof new shift in the economic

policies of government of India. Opening up of the economy and privatisation was

seen as the new paradigms of development. Since tourism is considered as one of

the fustest expanding industries in the world, the government decided to have tourist

destinations that shall be o<clusive and totally controlled and governed by special

authorities created for such purpose. The overall development of the region like

infrastructure, roads, water and power etc. would be provided by the concerned

state governments. For speedy implementation of such investments various clearances

process and tax exemptions were also part of the STA. The tourism ministry felt

thatthis would attract both nationaland multinational hotel chains to invest in tourism

in the country. Of places identified under STA apart from Mamallapuram,

Tharangambadiand Kancheepuram are other destinations in the state.

The idea of creating special tourism areas was the brainchild of a meeting of state

tourism ministers in 1991. The following is the outcome of the meeting.

Special Tourism Area (STA)

Resolutions adopted by the state tourism ministers conference on 106

December 199 | at New Delhi

The state tourism Ministers met on 106 December l99l under the

chairman ship of Union Minister of Civil Aviation and Tourism, Shri

Madhavrao Scindia, with a view to providing a major boost for

development of tourism in the country. Consequent to the detailed

discussions on various issues, the following recommendatory resolutions

were made:

SpecialTourism Area

@ The Sate Governmentshould considerdevelopment of Special

Tourism Areas in consulation witlt the Ministtyof Tourism, Government

of lndia.

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- Prior approval of the Ministry of Tourism will have to be sought before actuat

implementation of the project.

- The Special Tourism Areas will have identifiable boundaries to be notified

by the State Governments.

- Iand would be allotted for hotels and tourism related industtyat concessional

rates to prospective investorc according to the Master PIan prepared.

l. (b) In each Special Tourism Area, a Special Area Development Authority

would be constituted by the State Governments:

- With full delegation of powers under different statutes of the State

Government

- Provide single window clearance facility to the investors

- The Authority would prepare a Master Plan within 6 months for development

of Special Tourism Areas.

c) The Sate Government should provide basic infrastructure in

terms of roads, tntnsport network bus terminak, wayside amenities,

electricalgrids, water supply, law and order and municipal seruices.

d) The State Government should freeze the rates on water and

electricity supply at least for l0 years in such areas.

e) The State Government should exempt all projects connected

with hotels and tourism related industry being set up in the Special

Tourism Areas from all States and local body taxes for a period of at

least | 0 years.

0 The Central Government should provide infrastructural support

as required for development of Special Tourism Areas such as:

. Airports and airline senrices

. Railway stations

. Communicationnetwork

. Posdtelegraphsenrices/banks

(g) The Central Government should consider granting exemption from

specific central taxes, and providing fiscal incentives in the shape of

capital subsidy, interest subsidy, etc. for development of capital intensive

tourism projects.

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(h) The Central Government should set up a Tourism Development

Fund for providing, equity suppoft to investors in such areas for capital

intensive projects.

(i) The Central Government should provide special clearance for all

projects being set up in Special Tourism Areas from the environmental

angle.

(f) lndia Investment Centre/Embassies/Government of India Tourist

Offices to give wide publicity of such areas to foreign investors.

(k) At National levela Coordination Committee should be set up with

representatives from the State Governments, private trade and the

Government of lndia for coordinating all matters related to the Special

Tourism Areas.

STAs: The Concept and concerns

Firstly, the notion of tourism as adopted by the Government, in promoting STAs

itself is subjectto question. This notion although differs from the conventionaltourism

model, does not address any of the'issues, that either the environment or local

community, fuce at present in tourism destinations. There is a dispropot'tionate

distribution of common resources in favour of the industrT, thus depriving the local

community their right to such resources. Instead of integrating the local community

into the process of tourism, the STA concept virtually excludes them from the

process. With just the bureaucracy to monitor and control all happenings in an STA,

the right to intervention of the local community is curtailed. This will lead to total

exploitation and degradation of natural resources, to the detriment of the environment,

and the local people, in many cases, interfering seriously with their livelihood and

lifestyles. By adopting the system of STAs, this process of exploitation and depletion

is seriously accelerated and intensified.

Nowhere in the process of declaring an area as STA is the environmental carrying

capacity of the area considered. The requirements for protecting and preserving the

environment are given a total go-by. Socio-economic features of the area are also

not considered, with the result that the adverse impacts of the development on the

lives of the local people are not at all taken into account. There are no guidelines as

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to what sort of areas can be declared as STAs, giving leeway for any such area to be

declared as such. The entire process can be abused to promote industrialisation, and

use of land with total disregard for the environment, and dependent peoples.

The effects of creoting STAs

Overriding of panchayat and other local government bodies.

The creation of a Special Tourism Authority for each State has been proposed in the

STA resolution. This is in effecta mere addition to the existing bureaucratic structure,

and is in no way an expert body equipped to analyse the tourism potentials and

needs in an area, vis-a-vis the environmental or other socio-economic aspects.

Moreover the creation of a Special Tourism Authority overrides any and all current

powers vested in the panchayat and other local decision making bodies to decide on

the entry of industries, tourism or otherwise. This results in a total lack of participation

and decision making by local people, who are the ones to bear the impact of such

industrialisation. The say of those affected the most by tourism, is totally removed,

and all mechanisms of control or governance by the local communities is done away

with.

- Creation of Master Plans and Total Bureaucratisation.

The resolutions dealing with the STA provide for the creation of a master plan to be

made by the respective State Authorities. There are no guidelines as to what the

master plan is supposed to deal with. Lack of guidelines would allow individual state

governments to draw things to their advantage, leaving no space for interventions.

The question arises as to how such a master plan balances all the concerns, while

providing for means of tourism development.

On the other hand, it seems to be a document which merely identifies areas, and

projects targets to be achieved for tourism growth, irrespective of other repercussions

thereof. There are no requirements that the plan take any inputs from the local

areas, in terms of geographic conditions, environmental aspects, or any aspects related

to the people therein. lt is in effect an ad hoc document prepared by bureaucrats

with no heed to ground realities, or possible repercussions. The question also arises

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as to what extent the plan is followed in allowing various projects to come up. The

few limitations as set out in the plan may also be blatantly transgressed, adding tothe damage cause.d.

. The Subsidisation of Tourism.

The essential effect of this creation of STAs is that it subsidises tourism, for both the

tourist, and the investor or industrialist. However, what are the actual effects of

such repercussion? The economic burden of the subsidy will be transferred on to

others, in most cases, local peoples. For example, the freezing of rates on water and

electricity is not only an excessive measure, but there will be a disproportionate

increase in the rates payable by other local inhabitants, to compensate for the subsidy

being given to the tourism industry. Such other consumels, especially the local peoples,

should not be made to bear the brunt of development especially when most of the

tourism industry stands to make heavy profits from this proposal.

. Environmental clearance for tourism and non-tourism projects.

The resolution provides for special clearance to all projeca to be undertaken in the

STA. Since it is mentioned specifically that this is with respect to environmental

clearances, it means thatthe projects do not have to fulfill any environmental norms,

ranging from pollution control to other siting norms. Projects not related to tourism

enjoy the benefit too, since the words used are ."all Projects". Not only is this

unnecessary, but the repercussions can be staggering, and any project can use this to

avoid environmenal requirements or safeguards. Consider for example, a case like

that of Karnataka, where the entire coast has been declared as a special tourism

area. This provision throws open the coast to arbitrary and harmful development in

all forms, and is, in effect, a total ouster of the operation of the CRZ laws.

. What does special clearance meanl

It is also not clear what the scope of the term special clearance is. The phrase is of

extremely wide scope, and can therefore be misused greatly. Also this means that

there is not even a minimum standard that is required to be fulfilled in order to get

clearance. The term also gives rise to enormous discretion in the hands of government

authorities and functionaries, paving the way for arbitrariness and abuse of power.

Monitoring the Tamilnodu Coosl

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How effective hos the concept of STAs been?

The concept of STAs has not been effective in promoting tourism. The only STA

destination in India that began to move along the lines of the Conference is the

Bakel Project in Keralam. Even after nearly a decade not a single project has come

up here. lnstead the local community has lost their lands and their economic activity

like agriculture, since most of the land acquired for this purpose was coastal agricultural

land.

The Master Plan prepared by the project was in clear violation to the existing CRZ

norms. All major resorcs were planned along the coastline in violation of the

prohibitory norms for construction of hotels and resofts in the CRZ guidelines. The

development activities underway now, like the park on the beach, again are in violation

of the set norms.

STA ot Mamo,llaPurom

At Mamallapuram the Tourism Authorities as well as Local Authorities have not

been consulted and even to date have no understanding ofthe STA concept. These

are the authorities on the ground planning and implementing the developmental

activities today. However it is not clear that what role they play vis-i-vis the STA

Development Authority.

The fundamental question to be asked while discussing STAs is that how different is

it from the regular tourism activities that take place today in Mamallapuram. Will it

be able to integrate the community into the tourism activities and how? Will their

traditional economic activities still be protected? Willthe conflicts in interests between

the hotel groups and the local community over common property such as beach be

settled? Will the existing panchayat system and the various authorities already present

be part of the new structure or will they be superseded by the new authority?

Who shall monitor the activities of the hotels, tourists, when they violate existing

norms and regulations? Will the state level agencies like the pollution control board

have powers within the STA? Will the Coastal Zone Management Authority have

powers over the coastal stretches of the STA?

Above all, with the authority as the sole agency of reference and control, what shall

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happen to the local community living inside the STA? Criminal activities like drug

peddling, anti-social activities like adult and child prostitution are rampant. Will the

authorit), check this or will it compromise, in the interests of the tourism industry

and the tourist? Would its activities be transparent?

The signals however, are not very encouraging from the tourism department and

the Tamil Nadu government. lt is based on the provisions of the STA tfe Central

Government should prouide special clannce for all projects being set up ln Special

Tourism Areas from the environmenal angle" relaxation in CRZ is sought by the

government at Mamdlapuram.

Do not the members of the conference feel the need for further debate?

A Final Note

The entire analysis presented establishes beyond doubt, the need to reconsider the

present models of tourism operating not only in Kanniyakumari and Mamallapuram,

but in all tourist destinations along the coast.

A deeper understanding of the environmental impacts is required, which can be

done only by experts in the field of marine and coastal environment, equipped with

the basic understanding that it is the impact of tourism activities as a whole which

need to be considered. Individual developments can no longer be excused on the

ground that the impact they cause on the environment is marginal. Their contribution

to the overall devastation must be clearly recognised and delineated.

Socio-economic aspects also deserve further consideration, and a more statistical

economic mapping would go a long way in proving the detrimental impaca of tourism

on the local communities. Such large studies, however, can only be facilitated by the

Governmenq and it is imperative to ensure that the Government now recognises

the need for such evaluation.

In the meantime, the only hope for salvaging the enchanting coasg and ensuring the

integrity and well-being of its local communities, is by ensuring strict adherence with

law and procedure, as well as ensuring some amount of sensitivity on the part of the

Government, the Tourism Industry and the Tourists themselves.

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Ref:

Annexure I

COPY OF THE LETTER OF THE

HON'BLE CHIEF MINISTER OF TAMIL NADU TO THIRU SURESH PMBHU,

HON'BLE MINISTER FOR ENVIRONMENTAND FORESTS,

Sub:

GOVERNMENT OF INDIA, NEW DELHI-3

Environment Control - Environment (Protection) Acc 1986 -

Coastal Zone Management Plan - Revised Coastal Zone

Management Plan of Tamil Nadu Ruraland Town Area - Furnished.

I . Govt. Lr. No. I 634ZEC. I I l/9 l-58, dated 4.7.96.

2. Govt. Lr. No. | 634?EC. | | l/9l-65, dated 23.8.96.

3. Gow. Lr. No.l634ZEC. I I l/91-65, dated 30.9.96.

4. From the MinistrT of Environment & Forests, Government of India's

Letter

NoJ. f 70l ll16193 lA | | l, dated 27.9.96.

From the Director, Town and Country Planning, Lr.No.5378/97,

dated 18.2.9

Government Letter No. 16342/EC. | | l/9I dated

The State of Tamil Nadu has a Coast line of about 1000 km. As per the 199 |

Coastal Regulation Zone Notification of the Government of India, tentative zonation

maps were got approved by Ministry of Environment and Forests in September

1996. Though the whole issue of Coastal AreaZonation is a contentious one, the

State, in deference to the directives of the Hon'ble Supreme Court took follow up

action in preparing the maps. These maps we prepared notwithstanding the absence

of clearly demarcated High Tide Line on the field and the Town Planning maps. We

have now prepared a revised set of maps carryng out correction and modifications

as suggested by the Government of India and as per field requirements and

developmental plans and sent to Government of India, separately. They may please

approved early.

The Ministry of Environment and Forests while according permission for the

i

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East Coast Road, among other things has stipulated that there should be no industrial

proiects or resort on the sea-ward side of the road. This condition, while going

against the spirit of the Coastal Regulation Zone will cut ar the very root ofdevelopment I would also impress upon )rou thatthe stretches shown in maps 6 and

7 have a great tourism potential which if properly exploited can earn a lot of foreign

exchange. The State Government will ensure that all out efforts are taken to preserve

the ecological balance and the beauty of the area while developing the place at same

time. I feelthat intervention atyour level is very essentialto getthe above mentioned

condition deleted.

I learnt from my Cabinet colleague Thiru N. K. K. PERIASAMY, Hon'ble Minister for

Handlooms and Environment that, when he discussed with you the above issues

during your short stop over at Chennai recently, you had promised to do the needful

early.

. I understand that the MinistrT of Environment and Forests has been in

dialogue with the Chief Hydrographer to get the High Tide Line demarcated on

land and on the maps. No doubt this is quite an expensive exercise, but still has to

be taken uP ver)t urgently under the aegies of the Ministry of Environment of

Forests who must fund it The discussion of my officers with the Chief Hydrographer

indicates that it would cost between Rs.2.00 to Rs.2.5 Crores to cover the entire

coast of Tamil Nadu. I would request you to move the Government of India early

to fund this activity so that we could have a scientifically prepared Coastal Maps.

Kind Regards,

Yours sincerely,

sd/-

(M. KARUNANTDHT)

EQUATIONS

Annexure ll

COPY OF THE LETTER OF

THE HON'BLE CHIEF MINISTER OF TAMIL NADU TO

THIRU MADAN LAL KHUMNA,

HON'BLE MINISTER FOR PARLIAMENTARY AFFAIRS & TOURISM

GOVERNMENT OF INDIA. NEW DELHI- I

Thank you for your kind letter dated August 13, 1998 emphasising the need

for comprehensive area development for tourism promotion.

Tamil Nadu has a long coastline of over 1,000 kms endowed with immense

tourism potential. The coastline is also quite populated. While the State

Government is eager to harnessing the full potential of the coastline, I should

assure you that all this development would adhere to the regulation set to protect

the ecological balance of the coastal area. What we seek to achieve is a

sustainable balance between development and preseruation of the coastal belt.

The State Government has had to satisry numerous regulations in promoting

tourism and related activities along the coastline. Two of these, namely the

Coastal Regulation Zone (CRZ) Notification of the Ministry of Environment and

Forests, Government of India and the restrictions governing the construction of

the East Coast Highway, have help up the planning and execution of very many

projects. Firstly, while the State Government welcomes the CRZ Notification

with its focus on preserving the ecological integrity of the coastal and marine

environment and the land - sea interface the categorisation of various stretches

of the coastline into zone under the notification and preparation of maps have

caused certain difficulties in clearing the tourism projects proposed in the coastal

stretch. This point needs some elaboration.

In the wake of Supreme CourtOrder in early 1996, the categorisation of the

coastal areas into ecologically fragile zones. (CRZ l), substantially built up areas

(CRZ ll) and areas fit for tourism related activities (CRZ lll) was taken up on a

war footing and was completed by September 1996. For this purpose, satellite

imagery was relied upon. The reliance on satellite maps coupled with, incorrect,

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interpretation of their features have resulted in a major portion of the coastline

being categorised as CRZ I thereby shuaing out development activities on much

of the coastal area. Very many Stretches of the coastline which are not ecologically

fragile but are ideal for tourism fell into Category l. I set right the records, the

State Government has now proceeded to recategorise the area on the basis of

actualground verification and has submitted fresh maps to Ministry Environment

and Forests, Governmentof Indiaforappronal. Officers of the State Government

have been calling on the officials of the Ministry of Environment and Forests to

explain the need for the proposed changes and it is now gathered that a team of

experts from that ministry would visit the State for further discussions. You

may appreciate that the CRZ Notification has indeed raised many issues and it is

our effofts to resolve these through discussion and proper justification.

Another problem in the implementation of the CRZ Notification is the absence

of authentic demarcation of the High Tide Line (HTL) on the suruey maps. The

HTL is the very basis for delineating the 200 meter and 500 metre belts of the

coastal zone. The demarcation of the HTL based on satellite imagerT has proved

to be quite faulty. Since tourism related activities need waterfront facilities,

correct delineation on the zones where construction activity could be permitted

is vital. Any ambiguity on this point would only delay the grant of approvals to

the construction plans of tourism developers. A workable arrangement needs

to be arrived at with the Ministry of Environment and Forests in the regard. The

results of the recategorisation exercise now going on, could be approved that

ministry subject to correct demarcation of the HTL by the Chief Hydrographer

to the Government of India. We are approaching the Chief Hydrographer to

take up survey work on selected stretches of the coastline.

6. There are host of other issues connected with the above two basic problems. I

would like to highlight one of them as it has, more than an), other, held up

tourism development along the coastline. This refers to the East, Coast Highway

over it construction of which environmentalists had evinced concern. The

construction of the highway has been taken up in two phases the first one

(which has now been completed linking Chennai to Cuddalore (170 kms) are

the second to be laid from Cuddalore to Kanyakumari (570 kms). Work on

Phase | | has not yet begun. While granting environmental clearance to Phase l,

the MinistrT of Environment and Forest Government of India laid down several

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conditions, one of them being that there should be no industry or hotel

construction on the seaward side of the highway. This has virtually prohibited all

development over the entire length of the Tamil Nadu coastline every

development that is permitted under the CM Notification.

The East Coast Highway runs anywhere from 500 meters to 5 kms away from

the coast. The CRZ Notification regulates activities only within the 500 metre

belt. On perusing the records relating to the environmental clearance governing

phase I and the records submitted to the High Court of Madras in the course of

public interest litigation, we feel strongly that intention of the Government of

lndia, all along was only to ensure strict observance of the CRZ Notification and

nothing more. lt appears that the prohibition on tourism related activities the

entire width of the coastline uPto the East Coast Highway was a result of

inadvertence. This needs to be corrected at the earliest. We are approaching

the Ministry of Environment and Forests to amend the restrictive clause

accordingly. We would greatly appreciate your intervention in this matter.

Finally, I would like to share with you the encouraging resPonse we have receiving

from entrepreneurs to set uP resor[s, amusement parks, hotels, golf courses etc

along the coastline. I am sure, with your able guidance, these projects will fructify

and earn valuable foreign exchange for the country.

Kind Regards,

Yours sincerely,

sd/-

(M.

KARUNANIDHI)