Coostol Tourism in Tomilnodu:

A Stotus Report

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INDIA
 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 I

Tourism: A Status Repoft from Kanniyakumari 7

Tourism: A Status Report from Mamallapuram 23

Special Tourism Areas: Revisiting the concept 43

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
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. To prepare a Master Plan for Special rourism Areas, to identiff the deficiencies
in infrastructure and suggest integrated intensive developmental activities.

3. To encourage private investments in tourism promotion and arrange to channelise

through a single window clearance.

4. 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

6. 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 of
tourists 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.

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 for

on 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 of

the Arabian Sea, lndian Ocean and the Bay of Bengal meet. h is one of

the 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 of
lndia. 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.
 €=
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, with
the 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 of

Kanyakumari District and other sea erosion works: lgg5-96 Budget
Estimation (n Lakhs) 10.92.

6 ibid pagr,, 4l
7 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 was
also prepared during 1996. While one department reiterates thar there is sea
erosion
in thedistrict' another department of the same Sate Governmenq despite its primary
duty 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, operational
cost increase and added to this is the coastal erosion, there is nobody to listen to
us"

Apothy of authorities

The constant refrain of the fisher community seems to be that the authorities or
political 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 in
fishing in Dubai and were drifted to lranian water while fishing and captured for
violating 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 the
concerned authorities including the state machinery in securing their release. They
feel 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.
 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.

r
I

I High Rise buildings place extreme pressures

I on the coastal environment, causing erosion
i

and sea-level rise, which then neccesitates the

construction of breakwater walls, as seen in
the foreground.

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

View from the western side

An abandoned construction, intended to be a swimming
pool, The construc-
of the Thiruvallluvar statue.
tion is right on the High Tide Line'
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.

: t:
=
.--...__: -:t€
=#
 '!:.!

Sea erosion affects the community

adversely, as they are left with no
cF space to dock boats, or carry on fish-
ing related activities. The beach at
-r.4":!?r*: Kanniyakumari has been reduced to
t" 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 in

Kanniakumari. 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 TMENT

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 of
Depamnents are reguested that all construction of building plans in this
area may be first referred to the Director of rourism and obain his
prior cleatance. The Director of rown and countty ptanning should
acknowledge receipt of this G.O.

/By order of the Governor/ P. Sabanayagam

/True copy/ Chief Secreary to Government

There is also another significance to this order. The order was in accordance with
the 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. Today
Mamallapuram 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 the
hardships 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 in
favour 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, after
conseryation 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 under
consideration. 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 for
beach 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/90
dc | 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 of
Federation 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 ts 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 of
the 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 in
MomolloPurom

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 of
Tamil 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.

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

2. 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
5. M/s. Chandrakala Resorcs Hotels Pvt. Ltd., Chennai
6. Ms/Amusement & Picnic Resofts (P) Ltd., Chennai- l.
7. 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

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.

 €
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
 iF
the 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 eontinre
to 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..::

,*t= ff
=riiiB^+
E
e-

Adjacent isthe Cqnmunity fufilement at FtarnmaHapJram, l'fieenava Fakuti. t{.trat hastourisrn

Contrifuted to their: lives?
 (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 tln dense, natwal coastalt egetatkn srranndrg the Fnt
it. Seen abo is

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 erosion
rampant in the areaXn the f,ore-
groud is the atrea uaditiona,l,ly
used 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
of Union Minister of Civil Aviation and Tourism, Shri
chairman ship
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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asto 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 to
the 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.

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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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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,
GOVERNMENT OF INDIA, NEW DELHI-3

Sub: Environment Control - Environment (Protection) Acc 1986 -

Coastal Zone Management Plan - Revised Coastal Zone
Management Plan of Tamil Nadu Ruraland Town Area - Furnished.

Ref: 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

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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 of
development 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 of Environment and Forests has been in

understand that the MinistrT
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)
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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.

7. 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)