Tourism Department

[Type text] [Type text] [Type text]

Report

Tsunami Rehabilitation Programme

Disaster Management Department Government of Kerala

Benefit Monitoring & Evaluation

Sector 2 Infrastructure Development

Part 5 Tourism Department

April 2012

(Formerly Centre for Taxation Studies) Government of Kerala Thiruvananthapuram 695018 Kerala India www.gift.kerala.gov.in Tourism Infrastructure BME-TRP

Evaluation Team

Dr. C.S. Venkiteswaran Associate Professor, GIFT

Dr. N. Ramalingam

Associate Professor, GIFT

P Rajesh Kumar Social Development Specialist (Consultant)

Tourism Infrastructure BME-TRP

Contents

Preface 4

Acknowledgments 5

Abbreviations 6

Evaluation at a Glance 7

Chapter 1 Introduction 8

Chapter 2 Tourism Department: Evaluation of Schemes 21

Tourism Infrastructure BME-TRP

Preface

sunami was one of the wor st and most devastating of tragedies to strike the IndianIndian coast in recent times. Governments and several agencies immeimmediimmediatdiatelyatelyely rose to the occasion to take up Tthe task of rehabilitation and resettlement of peoplpeoplee affected by the disaster. Tsunami Rehabilita tion Programme (TRP) that was implemented by the DisastDisasteDisastererr Management Department of Government of Kerala is one of the largelargestst and the most comprehensive of such interventions in terms of its size, scope and reachreach.. Funded by the Planning Commission, Governm ent of India, an amount of Rs.1148 Crores were spent for various livelihood, infrastructure, rehabilitation and resettlement programmes. It was implemented through 16 Departments and several government agencies and SelSelff HelpHelp Groups, spread across the coast al region of the state. The Programme was launched in 20072007 and is nearing completion.

The Benefit Monitoring and Evaluation (BME) of TRP was entrusted to Gulati Institute of Finance & Taxation (GIFT). To conduct the study, an EvaluatiEvaluationon Team was formed con sisting of two faculty members from GIFT, Dr C S Venkiteswaran and Dr N Ramalingam, and a Social Development Specialist, P Rajesh Kumar as consultant.

This Report was prepared as part of BME -TRP, and relates to the schemes implemented by Tourism Department under this programme. During the study, we received overwheoverwoverwhelhelminglmingming support from the officials of TRP Section and Cell, PIU at the Directorate of Tourism and the officials of Harbour Engineering Department that executed the project.

We are happy to submit th is draft report to the Disaster Management Department, Government of Kerala.

Thiruvananthapuram Dr. D. Narayana 25 April 2012 Director, GIFT

Tourism Infrastructure BME-TRP

Acknowledgments

The Evaluation Team of Gulati Institute of Finance & Taxation gratefully acknowledges the help and support extended by the following individuals and institutions:

• Dr Nivedita P Haran, IAS, Project Director, Tsunami Rehabilitation ProgrProgrammeamme & Additional Chief Secretary, Revenue, Government of Kerala. • Sri. Suman Billa IAS, Former Director, GIFT & Commissioner, Commercial Taxes, Government of Kerala • Dr. D Narayana, Director, GIFT • Staff of TRP Section and Cell, Government SecretariatSecretariat,, Thiruvananthapuram • Deputy Director, Planning, Directorate of Tourism, ThiruvananthapuramThiruvananthapuram • Shri. C.V. Sasidharan, Assistant Executive Engineer, Harbour Engineering Department Kozhikode. • Shri . Ansari, Assistant Executive Engineer, Harbour Engineering Department, Baypore • Sri Sreevasudeva Bhattathiri (Cover Layout & Design) • Academic & Non-academic Staff of GIFT

Thiruvananthapuram Dr. C. S. Venkiteswa ran & Dr. N. Ramalingam 25 April 2012 Associate Professors, GIFT

Tourism Infrastructure BME-TRP

Abbreviations

ADB : Asian Development Bank AS : Administrative Sanction BME : Benefit Monitoring and Evaluation CBO : Community Based Organisation CESS : Centre for Earth Science Studies CMFRI : Central Marine Fisheries Research Institute DTPC : District Tourism Promotion Council FGD : Focus Group Discussion HDPE : High Dens ity Poly Ethylene HED : Harbour Engineering Department KSEB : Kerala State Electricity Board KWA : Kerala Water Authority LSG : Local Self Government MLA : Member of Legislative Assembly MP : Member of Parliament NGO : Non-Governmental Organisa tion PIU : Project Implementation Unit PMU : Project Management Unit PRA : Participatory Rural Appraisal SHGs : Self Help Groups SLEC : State Level Empowered Committee SLSC : State Level Steering Committee TEAP : Tsunami Emergency Assistance Pro ject. TRP : Tsunami Rehabilitation Programme

Tourism Infrastructure BME-TRP

Evaluation at a Glance

Tsunami Rehabilitation Programme Tourism Department

Development of Tourism infrastructure

Five Areas of Performance Score (Maximum Score -20 for each )

1 Project Concept and Planning 15

2 Project Monitoring and Achievement of Core Objectives 13

3 Co-ordination within and between Departments/Agencies 9

4 Beneficiary Satisfaction, Participation and Community Mobilization 8

5 Innovations and Sustainability 7 Total Score 52 Grade Average

*Poor = 20 and Below; Below Average = 21 -40; Average = 41-60; Good = 61-80; Excellent = 81 and Above

Tourism Infrastructure BME-TRP

CHAPTER 1

INTRODUCTION 1.1 The Disaster

sunami that hit the costal arc of Kerala on 26 December 2004 inflicted colossal dadamagmageses to the infrastructure, ports, harbors, fishing jetties, electricity transmission systems, fishing vessels and Tother assets along the coast, and above all, the lives, human settlements and livelihood of the coastal community.

Table No 1.1 An Overview of Damages Caused by Tsunami in Kerala

Component Initial Revised after Assessment In-depth assessment

Coastal length prone to sea erosion (Km) 250 590 Penetration of water into the main land (Km) 1-2 5 Average height of tidal waves (Mts) 3-5 5-10 No of Villages affected 187 226 Population affected (In Lakhs) 4.25 10 Human lives lost (Nos) 171 238 Persons moved to safer places (Nos) 24978 24978 Dwelling places destroyed 2919 2919 Live stoc k lost (Exc. Poultry) 883 883 Cropped area affected (Ha) Including River Banks near the seashore 949 2151 Boats destroyed (Nos) 10882 3989 Source: Disaster Management Department, Govt. of Kerala

Tourism Infrastructure BME-TRP

The fact that the population density along the entire coa stline is the highest and the people inhabiting the coasts are among the poorest, amplify the intensity ofof the impact of the calamity on the lives of the people. It has borne the maximum brunt of devastatidevastationon in terms of loss of lives, inflicting of injuries, loss of houses and properties. Even before tsunami, the fish catch from the sea was on the decline, which was further worsened by its impact upon their income lelevevelsls and livelihood.

The State, NGOs, UN agencies, and the world communicommunityty respondedresponded quickl y with relief and rehabilitation measures. Tsunami Emergency AssistanAssistancece Programme (TEAP) funded by Asian Development Bank, Prime Minister’s Natural Calamity Relief Fund (PMNRF) and Tsunami Rehabilitation Programme (TRP) as additional central assistance by Planning Commission of India were the major projects implemented by the Government of Kerala as part of its rehabilitation anandd resettlement efforts.

1.2 Tsunami Rehabilitation Programme – National Approach

Looking at the extent of damage, Planning Com mission had drawn up the Tsunami Rehabilitation Programme for reconstruction of damaged physical anandd socialsocial infrastructure and revival of impaired livelihoods of the coastal communities. A Core GroGrouGroupupp in the Planning Commission was set up under the directi on of Honb’le Prime Minister to coordinate and manamanagege the National Tsunami Reconstruction effort (PMO UO No. 100/61/C/42/04 -ES-II). The Core Group has representation from Central Ministries/Departments, State Governments, Research InstitutionsInstitutions and the Plan ning Commission. The objective of TRP is to restore the livelihood and economic activities of the affected population, accelerate poverty alleviation in the tsunami -affected areas that are vulnerable to high incidence of poverty, and rehabilitate and reco nstruct public and community-based infrastructure that are vulnerable to natural disasters.

Guiding Principles of Tsunami Rehabilitation Programme

The mandate of the Reconstruction and Rehabilitation program me for Tsunami affected areas goes beyond the immediate priorities or Tsunami reconstruction, and pursuespursues broader social and economic issues that impact upon the household and community -level development and empowerment. The Programme emphasizes improving quality of life, using replacement and up -grad ation of assets as means to achieve it. This is in consonance with the Prime Minister’s appeal of “converting the disaster into an opportunity to rebuild and modernize the fishing anandd coastal economy.” The program also focuses on reduction of susceptibilit y of the coastal communities to Tsunami like disasters by increasing the efficacy of prediction and response mechanisms. The overarchoverarchiningg principles, which will govern the Programme implementation, include the following: i. Good Environment Management Pra ctices: Attention will be paid to ensure that all programmes/sub programmes emanating from this ProgrProgrammeamme do not have any adverse - environmental impacts and that they conform with ththee EnvironmentEnvironment and Coastal Regulation .

Tourism Infrastructure BME-TRP

ii. Participatory Approach: Under t he Programme Implementation Framework, people and representative institutions would be involved in the decision making process during programme/sub programme design and execution. This would ensure tthahatt community priorities and aspirations are reflected in programme deliverables . iii. Egalitarian Approach: The Program would in all its initiatives apply prinprincciplesiples of equity to ensure, that the most disadvantaged amongst the victims are nnoott bypassed iv. Private Sector and Non Profit Sector Participation: It is proposed to encourage participation of private sector, NGOs and expert institutions in the program me so that they are an integral part of the rehabilitation planning process. This will expand the ownership and knowledge base of the programme. v. Gender Sensitivity: A disaster is often more debilitating for women. ThThee program me will ensure that special consideration is provided for women in special circumstances that include women headed households, widows and destitute women. The program me would ensure that women and women groups are involved in all stages of program me design and implementation so that special needs ooff women are incorporated vi. Concern for children: Nutrition, health and education needs are factors , which directly impact welfare of children. The program me will make provisions for building up the necessary infrastructureinfrastructure through which these services can be delivered to children affected by Tsunami . Special provisions would be made for children rendered orphan due to Tsunami vii. Need Based Approach: The programme would take into cognizance the special needs of tribal and coastal communities affected by the Tsunami. The program me designs under the program me would stay sensitive to region specific culture, climate, life style and econom ic vocations of the beneficiaries. The norms an d standards would be accordingly defined. viii. Transparency & Accountability: The programme will institute appropriate institutional and procedural mechanisms to ensure the transparen cy and accountability. I t is every citizen’s right to know the relief available to him/her in the event ooff disasters and what has actually been distributed. Transparency in rehabilitation and reconstruction operations also ensures that distributive justice is done and reduces com plaints and counter complaints. ix. Objectives and Outcomes: Planning for each sector would carry clearly identified objectives and outcomes so that at the completion of reconstructioreconstructionn phase, clear achievements and deliverables can be quantified.

1. 3 Tsu nami Rehabilitation Programme in Kerala

Government of India announced additional central asassisistancestance of Rs 1148 Crores for Tsunami Rehabilitation Programme (TRP) in Kerala . To accelerate the economic recovery in affected aarreaseas rehabilitation programmes were implemented by the Department of Disaster Management in nine coastal districts of the state through 16 line departments and agencies viz; Department of Fisheries,

Tourism Infrastructure BME-TRP

Kerala Water Authority, Public Works Department, HaHarborbourur Engineering Department, Kerala St ate Electricity Board, Health Department, Education DepartmeDepartment,nt, Social Welfare Department, Animal Husbandry Department, Dairy Development Department, AgricultureAgriculture Department, Irrigation Department, Forest Department, Tourism Department, Science Science & Technology Department, Co- operative D epartment. In addition the Coastal Housing and ReseResetttlementtlement Programme is directly implemented by the Revenue Department. The total aallocllocationation for Tsunami Rehabilitation Programme (Additional Central Assistance) is Rs.1148 Crores . This inc ludes a Special Package of Rs.100 crores being implemented through the District Collectors in four badlybadly affected pockets: Alappad (Rs.42.50 crore), Arattupuzha (Rs.40.00 crores), Edavanakkad (Rs.12.50 crores) and Andhakaranazhy (Rs.5.00 crores).

Government of Kerala for the speedy and effective iimplmplementationementation of the programme created the following administrative arrangements

I. State Level Steering Committee (SLSC) II. State Level Empowered Committee (SLEC) III. Project Management Unit (PMU) IV. Project Imp lementation Unit (PIU) V. District Level Monitoring Committees VI. TRP Cell

I. State Level Steering Committee (SLSC)

A State Level Steering Committee was constituted wiwithth the Chief Minister as Chairman, Minister (Revenue) as Vice-Chairman, Head of Department of the Disaster Management Department as convener and with the following members. Minister for Finance, Minister for Transport, Minister for Public Works, Minister for Local Self Government, Minister for Fisheries, Minister for WaWateterr Resources, Minister f or Ports, Minister for Electricity, Minister for Agriculture, Minister for Forest, Minister for Housing, Minister for TourismTourism,, Minister for Industries, Minister for Social Welfare, Chief Secretary, Principal Secretary/Secretary, Finance, Transport, Public Works, Local Self Government, Fisheries, Water ResoResoururces,ces, Ports, Electricity, STED, Agriculture, Forest, Housing, Tourism, IndustrieIndustriess and Social Welfare.

Duties & functions of State Level Steering Committee (SLSC)

´ The SLSC would act as an advisory bod y to provide overall guidance for the effective implementation of the project and to monitor its prprogrogressess from time to time. ´ The Committee will meet at least once in six months. ´ The Committee can co-opt any other Ministers or Officers of State Gov ernment or any expert in the field as member.

Tourism Infrastructure BME-TRP

II. State Level Empowered Committee (SLEC)

Government also constituted a State Level Empowered CommitteeCommittee (SLEC) for Tsunami Rehabilitation Programme with the Chief Secretary as Chairman and Principal Secret ary/Secretary of Disaster Management Department as convener and with PrincipaPrincipall Secretary/SecretarySecretary/Secretary of the following departments as members:- Finance, Transport, Public Works, Local Self Government, Fisheries, Water Resources, Ports, Electricity, STED, A griculture, Forest, Housing, Tourism, Industries andand Social Welfare.

Duties & functions of State Level Empowered Committee (SLEC)

´ The Committee will have the powers to grant requisirequisitete approvals/sanctions for various projects/schemes submitted by the implementing agency based on the recommendations of the Project Management Unit. ´ The Committee will also monitor and supervise the eeffffectiveective implementation of the project. ´ The Committee will meet at regular intervals as per need and at least once i n three months to review the overall progress. ´ The Committee will have powers to co -opt any other officers of the State Government as MMembember.er.

III. Project Management Unit (PMU)

In addition a Project Management Unit constituted in the following pattern.

Project Director : Additional Chief Secretary/Principal Secretary/ Secretary of Disaster Management Department

Members : Executive Director, Kudumbasree, Director of Fisheries, MD, Kerala Water Authority, Member (Distribution), KSEB Chief Engineer, PWD (Roads & Bridges) Chief Engineer, Harbour Engineering Dept. Director, STED Director of Agriculture, Director of Panchayats Director of Social Welfare Chief Conservator of Forests, Secretary, State Housing Board

Member Secretary : Head of the TRP Cell in Disaster Management DepartmentDepartment.. & Convener

The Unit will have the powers to co -opt any other Officer of the implementing agency if consider it necessary.

Tourism Infrastructure BME-TRP

Duties & functions of Project Management Unit (PMU)

PMU is responsible for: ´ Providing day-to-day assistance and gu idance to implementing agencies ´ Review of sub projects/proposals from implementing agenciesagageenciesncies for approval for SLEC/ADB and issuance of requisite administrative sanctions. ´ Disbursement and accounting of funds against review of financial reports pro vided by implementing agencies ´ Consolidation and submission of Progress reports to the SLEC ´ Quality control and transparency requirements to be followed by the im plementing agencies ´ Such other related ma tters for the effective implementation of the ProjectProject..

IV. Project Implementation Unit (PIU)

All the departments involved in Tsunami RehabilitatioRehabilitationn Programme have constituted Project Implementation Units in the respective departments

The Project Implementation Unit (PIUs) will be responsible for: - ´ Detailed assessment, surveys and planning of reconstrreconstructionuction including public consultation and input from recipient’s lo cal entities and beneficiaries ´ Preparing and presenting sub project proposals to th e respective Executing Agencies ´ Prioritizing works, preparing detailed designs, specification, schedule of quantity, contacts and related bid documents, issuing requisite technical sanction. ´ Day to day implementation, supervision and quality controlcontrol of reconstruction activities, approving paymen ts to contractors ´ Maintaining progress report, records and accounts for sub projects. ´ Such other day to day matters relating to the execution of their schemes/projects.

V. District Level Monitoring Committee

District Level Monitoring Committee was formed for the effective monitoring of the project implementation and for taking the course correction actionsactions and for avoiding bottlenecks in field level implementation in the following pattern

Chairman : President of the District Panchayat concerned

Members : Head of District Offices of Public Works, Water ResouResoResources,urces,rces, Agriculture, Tourism, Social Welfare, Industries, Ports and ElectElectricity,ricity, Presidents of Block and Grama Panchayats in the district concernedconcerned who are implementing the Tsunami Rehabilitati on Programme

Member Secretary : District Collector of the districts concerned & Convener

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VI. TRP Cell

Government formed TRP Cell in the Disaster ManagementManagement DepartmentDepartment under an IAS Officer in the rank of Additional Secretary/Joint Secretary/ Deputy Se cretary with an Under Secretary, one Section Officer, Two Assistants, one Stenographer, oneone Typist and two peons.

1.4 Terms of Reference

Gulati Institute of Finance and Taxation (GIFT) was entrustedentrusted to conduct the Benefit Monitoring and Evaluation (BME) of the Tsunami Rehabilitation Programme implemented by the Disaster Management Department, Government of Kerala.

Objectives of the Evaluation

The final project evaluation is intended to provide an objective and independent assessment of the impact of project strategies and interventions. The objectives of the final evaluation are: ´ To assess the quantitative and qualitative output / outcome of the programs on the target groups vis a vis the stated objectives in key -result areas namely (a) poverty reduction, (b) instiinstitutionaltutional strengthening and community empowerment, (c) strengthestrengthenninin g social capital, and (d) rebuilding social and physical infrastructure . ´ To map the process elements as envisaged in the projprojeprojectectct document and undertake process monitoring to supplement the evaluation results. ´ To document the best practices and the les sons learned for the benefit of on course correction and future planning and guidance. ´ To critically examine the issues related to the sustsustainabilityainability of the gains of the project after its withdrawal. ´ To assess the SHG activities for livelihood development and the benefits derived by the State in post-tsunami operations.

Scope of the Evaluation

The evaluation will cover the projects implemented under under tsunami rehabilitation programme completed upto 31st July 2011. The evaluation will cover a represen tative sample of nine districts of Kerala (location specific) where the Tsunami rehabilrehabilitationitation programme is being implemented and the activities of 16 departments (Sector specific). Appropriate sampling design is to be worked out for the selection of the v illages and the households. The family should be taktakenen as the basic unit of study at the micro level. For data collection, suitasuitableble interview guides and interview schedules could be used along with focus group discussions, case st udies and observation tech niques. The whole exercise of evaluation is to be participatory, using PRA methods, stakeholder analysis etc.

Tourism Infrastructure BME-TRP

Furthermore, relevant data from records and reports hhaveave to be gone through. Facts and figures collected from various sources should be triangulat ed for ensuring their validity and reliability. The progress and achievements of the project will bebe tested against the following standard evaluation criteria:

Relevance:

The main focus will be on the appropriateness of ththee project’s concept and design to the overall situation of the project area, in particular, the: ´ Extent to which the stated objectives correctly and adequately address the problems and real needs of the target groups ´ Relevance of the project design within the frameworkframework of Government policy guidelines

Efficiency:

The main focus will be to ascertain how well the project activities achieved the intended results in terms of quantity, quality and timeliness including:

´ Whether similar or better results c ould have been achieved by other means at lower cost in the same time. ´ Whether project activities were done right i.e. on time, in expected quantity and quality. ´ General implementation and management of the projectproject in terms of quantity, quality, and timeliness of inputs and activities, adherence to work -plans, action-plans, and budgets ´ Extent to which internal factors (interventions, structures, culture, systems) influenced (both positively and negatively) achievement of program impimpaact.ct. ´ Adequacy of monitoring and evaluation, technical susuppportport given to the project by all stakeholders ´ Responsiveness of project management to changes in the the environment in which the project operates; ´ Co-operation among project partners and other key stakeholde rs in achieving project results

Effectiveness:

The main focus will be on the extent to whic h the project achieved its stated results and purpose in a sustainable way, including:

´ The progress made in achieving the results of the pprrojectoject at all levels ´ Efforts made in capacity building of the local projprojeectct stakeholders for the projects impleme nted with community participation and whether the strategistrategieses are working or not and why. ´ Project’s management of risks taking into account tthehe stated risks and assumptions.

Tourism Infrastructure BME-TRP

Impact:

The main focus will be on whether the project’s overall objectives have been achieved or are likely to be achieved, specific changes that the project has brought about in the lives of target groups, and impacts realized or likely to be realized, including: ´ Extent to which expected change has been achieved in the indicat ors against the baseline levels. ´ Extent to which the project has impacted on the tartarggetet communities in bringing about the desired changes. ´ Assess the extent to which the external factors have affected the achievement of the project impact. Sustainability:

The main focus will be on whether the impact, outcomesoutcomes or changes brought about by the project are likely to continue after the end of the project and whether they can be sustained, including:

´ Extent to which the target groups and key stakeholde rs own the objectives and achievement of the project. ´ Policy support/Resource support available to the project from the relevant Government departments of the State for the continuance/ operatoperation/maintenanceion/maintenance of the programme. ´ Assess the capacity of the communities/Govt. departments and the key stakeholdersstakeholders to continue the project activities after the end of the project, including financial and technical capacities. ´ Extent to which program activities are sustainable byby communities without the support f rom the project.

Specific Tasks

The consultant will be responsible for developing the evaluation design, methods, sample size and tools, with overall coordination from the Project DirDirectorector or from the designated staff in the PMU. All of this information will be presented to the Project Director/DesignatedDirector/Designated staff in the PMU and concurrence will be given to the consultant before the evaluation begins. Given the objectives, the final evaluation will use both quantitative and qualitative methods for collecti ng the required information. The proposed methods include key informaninformantt interviews, focus group discussions, document reviews and surveys. The consultant will uunndertakedertake the following tasks: Develop an evaluation framework and methodology in consultation w ith PMU. The methodology for the evaluation will include sample size selectioselectionn and a mix of quantitative and qualitative tools;

´ Develop an evaluation plan in consultation with PMU; ´ Undertake extensive document review to familiarize with the project; ´ Develop a list of output/outcome ind icators for each type of scheme.

Tourism Infrastructure BME-TRP

´ Develop evaluation tools in consultation with PMU and co nduct validation and field testing of the same; ´ Undertake data collection, tabulation and analysis exercise; ´ Share draft findings prior to preparation of draft report ; ´ Prepare the recommendations and guidelines for strengstrengthening/thening/ revival/ correction of the scheme which are found achieved the declared objectobjectivesives and outcomes ´ Prepare report; ´ Revise the report based on feedback from PMU, if any;

1.5 Methodology of Evaluation

Evaluation Team

GIFT constituted an Evaluation Team to conduct the above study and the Team worked out the following methodology.

Desk review and analysis of secondary data

In order to get familiarized with the project activiactivities,ties, the evaluation team carried out extensive document review of sub project plans and implem entation modalities. Facts and figures collected from various sources like PMU, PIU and PIOs were susubjbjectedected to a triangulation for ensuring their validity and consistency. After having an in -depth understanding of the project and the assignmeassignmennt,t, the Team p repared an evaluation plan.

Park in Kollam Beach after beautification work (file Photo)

Tourism Infrastructure BME-TRP

Categorization

For organizing the evaluation process and convenience of sampling, and on the basis of the nature of the intervention, the projects implemented by v arious departments under TRP were categorized by the evaluation team into five sectors as detailed below:

No Sector No Implementing Organisations

1 Fisheries Department

2 Animal Husbandry Department Restoration and Development of 1 livelihoods 3 Dairy Development Department

4 Agriculture Department

5 Public Works Department

6 Kerala Water Authority Infrastructure Development (Roads and 2 Bridges, Water supply & Sewerage, Ports & Jetties, 7 Kerala State Electricity Board Power and ICT and Tourism Infrastructure) 8 Harbour Engineering Department

9 Tourism Department

10 Health Department

11 Social Welfare Department 3 Social Infrastructure and Welfare 12 Education Department

13 Cooperative Department

14 Irrigation Department

15 Forest Department 4 Environment and Coasta l Protection 16 Science and Technology Department

17 Kerala State Inland Navigation Corporation

Coastal Housing and Resettlement Project* 5 18 District Administrations Special Package*

*The Coa stal Housing and resettlement project comes under the Environment and coastal protection sector and special package addresses the issues of all sectors in the four worst affected villages. However, these two projects which are implemented by the Revenue De partment are taken as a separate sector for the study.

Tourism Infrastructure BME-TRP

Sectoral Allocation Details

Others Livelihood Special package 2.88% 3.62% 8.71% Infrastructure 28.48%

Coastal Housing & Resettlement 27.68%

Social Infrastructure & Welfare Environment & 14.08% Coastal Protection 14.55%

Allocation – Infrastructure Sector

Toursim Infrastructure 22.94%

Other Infrastrucutre Toursim Infrastructure 77.06% Other Infrastrucutre

Sampling Strata & Selection

For sampling purposes, a stratified random sampling metmethodhod was adopted. The different strata are:

Stratum 1. Tourism Department Stratum 2. Two top ranking districts in terms of fund allocation –Thiruvananthapuram & Kozhikode Districts . (Refer Table 2.1 of Chapter 2) Stratum 3. Selection of Sub Projects (Basis: Random selection)

In the case of Tourism Department , the sample districts were selected on the basis ofof the funds allocated under TRP to each district for implementation of the Scheme(s)/ Sub Project(s). From the nine districts, the two top-ranking districts with regard to fund allocation were selected as sample for evaluation. (Refer Table 2.1 of Chapter 2)

Tourism Infrastructure BME-TRP

Methods Adopted & Evaluation Tools

The project interventions for development of tourism infrastructure in the tourism destinations in the oastal areas of the state under Tsunami Reh abilitation Programme is evaluated using four methods viz; i) Focus Group Discussions (FGD) ii) StrSStrutructureducturedctured Field Observation iii) Informal Interviews with Stakeholders and iv) Case studies. As evaluation tools, customized checklists and interview schedules were prepared.

Grading of Schemes

Based on primary and secondary data, structured obseobservationsrvations and focus group discussions with all the stakeholders like the representatives of PMU, PIU, Departments, Agencies, NGOs and CBOs the Team identified a set of five performance areas are listed below:

Five areas of Performance

1. Project Concept and Planning 2. Project Monitoring and Achievement of Core Objectives 3. Co-ordination within and between Departments/Agencies 4. Beneficiary Satisfactio n, Participation and Community Mobilization 5. Innovations and Sustainability

The Grading was done in the following manner

The Scheme was evaluated on the basis of each area of performance with a maximum score of 20 marks each. On the basis of the aggr egate score received, the scheme was graded on a fivfivee point scale ranging from Poor to Excellent as shown below. The Maximum Score is 100 (20 marks x 5) .

Grade Score

Poor 20 and Below Below Average Between 21 – 40 Average Between 41 – 60 Good Between 61 – 80 Excellent Above 80

Tourism Infrastructure BME-TRP

CHAPTER II

Tourism Department : Evaluation of Schemes Infrastructure for Development of Beach Tourism 2.1 The Scheme Under Tsunami Rehabilitation Programme, Tourism DepDepartmeDepartmenartmentntt has undertaken pro jects for development of tourism infrastructure in 26 destinatidestinationsons across the nine coastal districts of the State.State. The project envisages facilitating the overall economic development of the coastal belt by improving the life and livelihood of the coastal c ommunity through development and beautification of tourismtourism destinations in the coastal region of the State. An amount of ` 75 Crores were allocated for TRP Tourism development projects, out of which the DepartmeDepartmentnt has expended ` 71.49 crores. Though the ac tual expenditure under the project has crossed the allocated amount, the payments are still pending in the case of many of the sub projects.

All 26 tourism infrastructure development projects were implementedimplemented by Harbour Engineering Department. For the pr eparation of architectural designs , the service of external consultant was arranged by the Tourism Department.

After completing the infrastructure development in thetthhee tourism destinations in the coastal areas, the Department considered various options fo r the operation and maintenance of these assets withwith the participation of the coastal community which in turn was intended to augment their livelihood. Government has decided to constitute a committee at the district level for the overall management and maintenance of coastal tourism infrastructure developdevelopeded under TRP. The members of the committee are as follows: • MP of the concerned parliamentary constituency • MLA of the concerned assembly constituency • Deputy Director of Fisheries in the district • Deputy Director of Tourism in the district • Executives of the Regional Fishermen Welfare Fund Board • Peoples representatives of the LSGs of the concerned division

Tourism Infrastructure BME-TRP

At present, t he operation and maintenance plans are being worked out with the following objective in mind. • To ensure the role of the fishermen families in the managementmanagement of the newly developed coastal tourism infrastructure in Kerala. • Enable the fishermen families to utilize the income generatingggeeneratingnerating avenues arising out of the beach tourism activities. • Develop capacities of the fishermen families to enter into new new vocations and its better management. • Ensure better upkeep of the infrastructure and its further development.

It is aimed at meeting the operation and maintenance costs including power exclus ively from the income generated from the respective units.

Table 2.1 District-wise Project outlay ( ` in Lakhs)

Districts

Scheme/Sub

Project apuram apuram Kollam Ernakulam Malappuram Kozhikode Kannur Kasaragode Thiruvananth Alappuzha Thrissur TOTAL Development of 1 650.00 241.00 1037.00 809.00 360.00 105.00 1827.00 866.00 516.00 6411.00 Beaches 2 Artificial Reef 737.78 ------737.78 Total 1387.78 241.00 1037.00 809.00 360.00 105.00 1827.00 866.00 516.00 7148.78 (Source: PIU, Directorate of Tourism)

Azhikode beach, Thrissur District

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2.2. Observations

The infrastructure development works carried out by Tourism Department and executed by HED in Thiruvananthapuram and Kozhikode districts were selected as sample for in -depth evaluation. Out of ` 71.49 crores expended so far in tourism infrastructure under TRP, `18.27 crore (25.50%) was utilised in Kozhikode district and ` 13.88 crore (19.30%) for the projects in Thiruvananthapuram district. Together, these two distri cts account for 45 percentage of the TRP allocation in tourism infrastructure development.

Thiruvananthapuram District Tourism Department undertook the development and beautbeautibeautificationificationfication of three major tourist destinations viz; Kovalam, Shangumugham and Vel i in the coastal belt of the distri ct. The Evaluation Team v isited all these project sites for in -depth analysis of the intervention made by the Department.

Table No. 2.2 Details of projects implemented in Thiruvananthapuram district

Allocation Utilisation No Name of Sub proj ect (` in Lakhs ) (` in Lakhs ) Beautification & Development Shangumugham – Veli 1 392 392 beach 2 Beautification of Kovalam Beach 273 235

3 Offshore Multi-purpose Artificial Reef 768 760

Total 1433 1387 (Source: PIU, Directorate of Tourism, Thiruvananthapuram)

1. Development of Shangumugham beach

Following are the infrastructures development and bbeeautificationautification works carried out by Tourism Department in Kovalam beach under Tsunami Rehabil itation Programme.

• Restaurant block with kitchen and dining area • Pavilion with seating benches inside (2 Nos) • Kiosks (2 Nos) • Toilet block with 4 lavatories • Interlock tile paved Parking yard for 100 cars • Tile paved walkways (200m) • Landscaped garden • Garden lights along walkways at 5m intervals • Planter boxes with granite paved seating benches (6 Nos) • Compound wall with gates

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All the structures planned under the project are of good quality and are favourable to the development of the destination. But , as of now, almost all the structures are lying idle and are not being properly maintained. The reason being, the Department has notnot yetyet arrived at a clear -cut and realistic roadmap for operationalisng these structurstructureses in a manner that is beneficial both to the local residents and the tourists. (See Mathrubhumi report given below)

For instance, prior to the development works, this site site along with the nearby public road was regularly cleaned by the Corporation. Now, the sweepsweeperer deployed by the City Corporat ion is not cleaning even the walkway adjoining the public road. The Corporation workers consider it as the property of Tourism Department and have ignored the spacespace completely. The Tourism Department too has not made any alternative or temporary arrangemen ts for cleaning and maintenance of this destination.

Ever since the inauguration, the landscaped garden too is left untended, and is now covered with wild plants and weeds. Planter boxes constructed under the project are kept vacant and unutilized.

‘Ts unami of Drought in ShanghumughamTsunami Park ’ News item in Mathrubhoomi daily dated 21 April 2012 about the condition of the park at Shanghumugham

The evaluation team convened a Focus Group DiscussionDiscussion with the participation of seven regular visitors pre sent at the destination. They opined that all the structures constructed under the project added to the charm of the place. As it was part of the much -awaited development of the destination, they had great expectations about it. But sadly, even two years after the investment , the structures remain unattended and uncared. . If arrangements werweree made at least to open the comfort station it would have been of great help for the female tourists, who at present have no facility in the near vicinity.

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According to the wayside vendors the Evaluation Team met, theythey are ready to do maintenance works of the landscaped garden developed under the project. What they need in return was water connection and permission to sell flowers from the gardengarden to the tourists. They are hopeful that they can make supplementary income from this activity. InIn addition, this endeavor will add to the attractiveness of the destination, draw more visitors to it , and also boost their business.

The Department has not attempted to make even th e toilet blocks functional at least on a ‘pay and use’ mode. The vendors in this tourist destination areare ready to do anything for this; as such a facilifacilittyy is absolutely essential and will increase the number of visitors to this destinadestination.tion.

2. Beautifica tion of Veli Beach

Following components were constructed in Veli beach under the project to improve the infrastructural facilities of this destination.

• Tile paved seaside walk way (325 m) above the strengthened seawall with three bridges in between • Life guard station • Police aid post • Rain Shelter (One number) • Granite fixed benches • High mast lamps • One meter wide garden area along the walk way

Obviously, this destination had much scope for development, and was left neglected until funds made available by TRP.

The construction of all these structures has been c ompleted in all respects. The intervention was first of its kind by the Department in Veli, and has contributed in transform ing the appearance of the Veli beach. Earlier, the Department had deve loped a Tourist Village near the destination. The visitors used to roam around the tourist village onlonly,y, and the beach here received little importance iinn the itinerary of the tourists. After the TRP intervention, the beach in the western end of the destina tion has begun to attract more visitors. The desigdesignn and layout of the structures are elegant and appropriate to the beach terrain.

Almost all the shops and small business establishmentestablishmentsestablishmentss in this destination are run by local people and majority of them are from the fishermen community. All these stakeholders opined that that the number of visitors has increased considerably after the intervention and as a result, their business too.

The multipurpose sea wall cum walk way has helped inin controlling sea erosion in the location which was a grave issue for the 90 odd inhabitants of the area. All the local people interviewed by the evaluation team opined that the intervention has enabled safer environment and a sense of security to the tourists.

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The structure remains sturdy, and has resisted the strong waves during the last two seasons without suffering any damage.

The new rain shelter and the seating arrangemen ts provide the visitors a comfortable view of the sea and sunset. The life guard station constructed in thi s site is of great convenience to the life guards working here, who perform a praiseworthy service forfor the visitors. This building is used by them to take rest and to keep their equipments and belongings

However the high mast lamps installed as part of th e project has not yet become functional, for want of electric connection. As a result, this tourist center has to close operations before sunset. The security guards deployed by the Department evacuate thethe visitors from the beach to prevent antisocial acti vities. Though lampposts have been established in the beach, they remain nonfunctional even after two years due to procedural complications in getting power connection.

Seatings have been built in some portion s of the walkway in the beach. But roofing is not done over these seats. So this arrangement is not useful at ththee time of the rain or intense sunlight. It can be used only in the evenings when there are no rains. The rain shelter con structed under the project has limited space and is not sufficient en ough to accommodate even a small group of visitors. AsAs there are many visitors who come here even during noontime,noontime, the vendors and the local people are of the opinion that roof coverings are very much necessary.necessary. Moreover, as there are no other built struct ures near the beach, in the event of sudden rain the tourists have no place to take shelter. The local vendors reported that it was a common occurrence during rains.

In addition to the open air seating arrangement, thethe project could also have considered r oofed front open shelters for this site.

The police aid post is kept idle and locked for the last two years and the iron parts like the window bars and locks have started rusting. Still, it only requires minor maintenance work in the event of thethe Police Department deciding to operationalise the aid post.

3. Beautification of Kovalam Beach

Under Tsunami Rehabilitation Programme, following devedevelopmentlopment and beautification works are carried out in Kovalam Beach . The work was completed in May 2010.

• Tile p aved walkway (900 m) • Life guard station • Police aid post • Toilet block with 4 lavatories • Cast Iron lamp posts (60 Nos)

Kovalam is one of the most favourite tourist destinations of international repute in the State, and many foreign tourists visit this b each during the season. Compared to its international fame, the infrastructural facilities offered by this destination was very poor, especially with regard to public

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sanitation, security police and life guards. The Tourism Department was able to meet th ese needs partially from the project allocation under Tsunami RehabilitationRehabilitation Programme. In addition, the tile paved walkways and the cast iron lamp post s were supposed to give the environment a pleasing loolookk and ambience.

The walkway, in addition to the p rettiness it gives to the location, enables the tourists to move around at ease and prevents sea erosion to a great extent. Nizamudin, Shop Keeper Eves Beach Kovalam

Walkway in Kovalam Beach , Thiruvananthapuram

4. Multi-Purpose Offshore Artificial Reef at Kovalam Beach

A multi-purpose artificial reef of 10 met res length and 38 metres width is established offshore of Kovalam. The reef has designed with the objective of creating an enabling environment for breeding various fish species and to control sea erosion to facilitate beach formation. In additadditiionon , by regulating the velocity of the waves it sought to enable the tourists to take sea bath.

The t echnical study on the impact of the project has beenbeen entrusted to two agencies. The technical evaluat ion is being done by the CMFRI, and the shore line study by CESS.

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The present evaluation is limited to the social benebenefitsfits generated by the project especially for the fishermen community.

After the reef coming up, the oysters and mussels have significant ly increased, and now we get a better catch of these items. Our colleagues fishing with ‘Kambavala’ say that their catch has also increased considerably.

Reghu Charley Fisherman, Kovalm Beach

Artificial reef before depositing in to the sea Kovalam beach

The Evaluation Team interacted with fishermen, shop keepers, tourist guidguideses and yoga trainers at Kovalam beach to assess the beneficiary perception about this infrastructural intervention by the Tour ist Department. All of them endorsed that the establisestablishmenthment of the multipurpose artificial reef has visible results and manifold benefits.

The fishermen opined that there were no tangible results for the artificial reef in the first year, but in the subse quent years, there was significant increase in the availability of oysters and mussels. The fishermen using Kambavala have much benefited by this intervention. Their fishing operationsoperations were done in the offshore area and there was significant increase in th eir catch, especially a year after the intervention.

As the reef regulates the force of the waves, the tourists can now take sea bath more safely. Earlier, during monsoon, sea erosion was severe at the southesouthernrn end of the light house beach. Now the situat ion has considerably improved and fresh shore formatformatiformationionon is happening in a steady and visible manner.

Kozhikode District

Development works were undertaken in six tourist dest destinationsinations of the District with an outlay of ` 18.41 crores. The evaluati on team visited five sites for in -depth evaluation of the present functioning of the projects and to assess the benefits generated for the target population.

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Table No. 2.3. Details of the projects implemented in Kozhikode District Allocation Utilisation No Name of Sub projec t (``` in Lakhs) (``` in Lakhs ) 1 Beautification and Development Works in Kozhikode Beach 2 Beautification and Development Works in Bhutt road Beach 628 628 3 Beautification and Development Works in Kamburam Beach 4 Beauti fication and Development Works in Kappad Beach 535 535 5 Beautification and Development Works in Beypore Beach 523 523 6 Construction of Groynes at Sand Banks , Vatakara 155 141 Total 1841 1827

1. Bea ch Development in Kozhikode The development and beautification works under the project in Kozhikode were undertaken in three beaches along the coastline of Kozhikode Corporation, viz, Kozhikode Beach, Bhutt Road Beach and Kamburam Beach .

Though all the development works in these beaches have been completed, the implementing agency has not handed over the site to the Tourism Department due to the objection from the Port Department. Port Department has raised claim over these developed beabeachcheses as they fal l under their jurisdiction. So, they have demanded that a lease agreement be enteredentered into with regar d to its operation. This has le d to an uncertainty in operation and management of thethe assets created under the projects in these locations, which are at pre sent looked a fter by none of the agencies.

A. Kozhikode Beach

Kozhikode beach is a popular destination attracting a number of domestic tourists. Prior to the TRP intervention, this location was not adequately attended to by the Department for lack of fun ds for meeting developmental needs. However, under TRP, a holistic holistic and comprehensive development plan was developed and executed . In addition to the beautification works and gabion protection walls in 233 meters, drainages were also constructed under the p roject.

Though the construction works have been completed in December 2010 according to specifications, the assets created, except for the parking area, have not yet become functional. The assets are left uncared for and might even need good deal of maint enance work before making it operational. However, the development and beautification works have given a fresh look and feel to the destination.

Components of the Development works done in Kozhikode beach • Beach centre cum cafeteria with four stalls • To ilet blocks with 11 lavatories

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• Hexagonal shaped Pavilion (6 Nos) with 11 sq.m. area each • Parking area • Seating galleries • Gabion protection walls (233 meter) • Walkways (850 meter)

Kozhikode Beach, Cafeteria and Craft Shop B. Bhutt road Beach

Followin g components were implemented in Bhutt Road beach which is an independent location free from any fishing or commercial activities. Work was started in December 2008 and completed by September 2010. • Lagoon with seats around • Hexagonal shaped Pavilion (6 Nos ) with 11 sq.m. area each • Beach centre cum cafeteria with four stalls • Toilet blocks with 11 lavatories • Steps for seating • Walkways (10070 m²) • Landscape (1500 m²) • Parking area (240m x 6m) • Granite finished planter boxes (21 Nos) • Cast iron lamp posts (102 Nos) • Drainage Channel (30m)

The visitors to this beach are comparatively few, nornor have the assets created under the project been made functional to attract more visitors. The landscalandscapepe and the garden are found in a withered

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condition as it was left un cared ever since the project was completed. The gragranitenite planter boxes are also kept vacant. The cafeteria as well as the toilet blocks remain closed for the last two years and the painting with elegant colour schemes has started fading. Unlike other site s, this is a secluded location and amenities like coffee shops etc are notnot available here. The project obviously has good prospects, but it has to be made fully operational toto attract tourists. The hundred odd lamp posts installed under the project which are yet to be lighted up with electric connection is also essential to generate the envisaged outcome of the project.

Bhatt road beach, Kozhikode

C. Kamburam Beach

Development works at Kamburam Beach that commenced in December 2008 with the following components was completed in May 2010 .

• Walkways (414 m) • Planter boxes (30 Nos) • Seating Galleries • Cobble stone paved Parking area (9m x 414 m) • Cast iron lamp posts (67 Nos)

In this location, the project was not executed as per the original plan. Due to o bjection from the public, the toilet blocks and cafeteria which were planned to be included were dropped. Earlier, there was a proposal to convert this beach into a convention centre so as to facilitate social gatherings away from the din of the city. But it was abandoned due to the agitation of the local people as they were apprehensive that such ‘developments’ may hinder their access to this beach which is also the site for their ‘Vavubali’, the annual ritual to propitiate ancestors.

The authorities involved in the project were not able to convince the public about the project plan and had to revise it due to their pressure. If the authorities were able to convince the local

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population that the development of the beach into a conference area would not in any way encroach upon their ritual spaces, it would have turned out to be an innovative attempt, both in terms of attracting people to the location, as well as in developing a revenue source in the form of rent for the conference hall. 2. Development of Kappad Beach A park with 2400 square meter area is developed withwith the following facilities in Kappad beach under Tsunami Rehabilitation Programme. • Entrance gate • Beach centre cum cafeteria with four stalls • Toilet blocks with 6 lavatories, 4 urinals and 9 wash basins • Hexagonal shaped pavilion (6Nos) with 11 sq. m. area each • Parking area (600 Sq. m.) • Seating galleries • Planter boxes • Cobble stone paved walk ways (12000 Sq.m) • Foot path area (1300 Sq. m) • Drainage works (700 m) • High mast lamps • Cast iro n lamp posts (130 Nos) • Compound wall with grills (600m)

The work was started in August 2008 and completed by September 2010

Entrance Arch, Kappad Beach

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The work was completed in June 2010 and has been trtraansferrednsferred to District Tourism Promotion Council for operation and management. The project cost upon finalfinal valuation worked out to ` 5.88 crores out of which an amount of ` 5.35 crores have been released to the contractors, limiting the cost to the AS amount.

Unlike many other sites, the power connect ion to this site has been obtained and high mast lalampmpss and other lamp posts have become functional. As the basbasicic facilities like cafeteria, toilets and the lightlightss are made operational; the number of visitors in this hihisstorictoric tourism destination has conside rably increased after the project interventions.

The cafeteria building has been given on lease to a private entrepreneur and is doing good business. But the said entrepreneur who took the building on lease has made some temporary extension to the bui lding which is not in tune with the overall design and look of the park. The building is constructed in an expensive manner with polished laterite walls and aanntiquetique lighting arrangements. At present, the exterexternanall view of this building is preposterous as it is covered with dark blue polythene sheets spread out for the extension works.

The toilet blocks are also operational on a pay and use mode. But water supply is blocked in some of tthehe urinals and they have become unusable. The blockade is caused by th e deposit of dry leaves in the HDPE reservoir installed on the top of the building.building. There is no clarity with regard to minor maintenance arrangement of the assets in this location.

The sub surface storage tank constructed in the middle of the park is le ft unattended. Now it is used for dumping garbage and other plastic waste by the visitors.

The illegal sand mining from beneath the walkways ppososee great danger to the structure and there are possibilities of a collapse of the walk ways in the near future if mining activities continue unabated.

3. Development and Beautification of Beypore Beach The development works with the following components have been undertaken in BeyporBeyporee beach. With the project intervention, the whole place has got a new look and man y tourists – from Kozhikode city and outside - have made it their favourite destination. The work was completed in June 2010. • Beautification work of existing break water • Boat jetty • Craft store • Beach walkway above the sea wall (150m) • Landscape • Lamp posts (360 nos.) • High mast lamps • Low mast lamps (7 nos.) • Signage and dustbins • Desalination plant • Biogas plant

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The traffic blocks that occur due to the influx of visitors’ vehicles during weekends can be simply taken as an indicator for the impact of this investment under TRP Mr. Anzari Assistant Executive Engineer, HED Beypore

Here also the planning was done with a holistic approach and the civil works executed by the Harbour Engineering Department with aesthetic sense andand commitment. For instance a bio gas plant and desalination plant were included in the developmental plan so as to facilitate easy waste disposal and safe drinking water to the visitors. The dustbins are fixed permanently so as to evade dismantling by the visitors, but wit h provision to tilt them both ways to take out the waste.waste.

Walkway over Beypore breakwater, Kozhikode

The 850 meter long tile paved walkway with seating benches and lamp posts are one of the most exceptional of its kind in the state. The walkway provi des a unique experience to the visitors as it extends into the sea up to 850 meters. This break w waaterter constructed under Tsunami Emergency Assistance Project is the highpoint of tourist attraction to this location.

Unlike other sites, the Department ha s managed to get the electricity connection here andand all the lamps installed have become functional. The lightinglighting arrangements on both sides of the 850 meter long walkway stretching over the break water give a pleasant experience to the tourists.

The loca l people with whom the Evaluation Team interacted acknowledge that the number of tourists visiting the destination has considerably increased after the development works done under TRP.

But even after two years, many of the infrastructures developed und er the project are not made operational. The bio-gas and the desalination plants are on the verge of ruin. In the absence of

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security arrangements, the door in front of the handhandicraftsicrafts shop is dismantled and window glasses damaged by anti social elements. The dummy roofing also has started to fall apart. TThhee boat jetty here is at present used for anchoring of the fishing boats.

However amidst all these managerial deficiencies, thethe destination, especially the presence of the Beypore breakwater walkway h as begun to occupy a prominent position in the itineitineraryrary of the tourists visiting the district, as is evident from their increasing numbers.

2.3 Analysis and Suggestions

Elegant design The design and layout of the beach beautification and infrastructur e development works in the selected destinations done by the external consultants are impressive and elegant. It is totally different from the conventional designs usually adopadoptedted for governmental works. The elegant design of the development works has tran sformed the appearance of the tourist spots and is a major factor attracting youth to these locations.

Quality Finish Like the designing part, the constructions have also been executed in quality manner by the Harbour Engineering Department, including th e finishing works. The structures are found without damage wherever there were no willful acts of destruction.

Dharmadam Beach, Kannur D istrict (File Photo)

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Integrated Planning In almost all the locations planning of the civil works are done taking i nto consideration the specific needs and environmental conditions of the location. Even poor security arrangements in the future were anticipated while designing the walkways in Beypore and Kozhikode. Another instance is the precautions taken in the design to prevent vehicles including two wheelers from entering into the walkways. Otherwise such vehicles could have been a source of annoyance to the tourists in these locations amidst the loose security arrangements instinstitutedituted by the DTPC or in its absence in other locations.

Along with the beautification works, the construction of gabion protection walls and drainages are also done in Kozhikode beach. Apart from common intervinterventionsentions like pavilions, cafeteria and walkways, site-specific works have also been i ncluded in almost all the locations. Another instaninstanccee is the desalination plant and the biogas plant attached to the cafeteria on Beypore beach. This work was executed in view of the lack of arrangements foforr freshwater and waste management system in this location.

Kamburam Beach Dilemma The plan of the Department to develop the Kamburam beach beach in Kozhikode into a conference location with all the supportive infrastructural facilities was a noteworthy move. The sub project was planned considering the overall situation of the city which many time is congested inin various prime locations due to large public gatherings of political parties as well as other social organizations. The development of a conference area in Kamburam beach which is near to the city but ou tside the major traffic line was a plan innovatively conceivedconceived for the development of the city as well for givinggiving facilities for interested organisations. But it was dropped due to the agitation of the local people. In fact there was no ground for the agi tation. The local people were skeptical that the development of the beach may encroach upon their ritual space in the beach for performing annual ‘vavubali’. The Department could have explored ways to convince the locallocal population and to carry out the deve lopment work without denying them facility for perforperformingming the rituals. The effort of the elected representatives and other stakeholders were also inadequate or feeble, all of which resulted in dropping the innovative move.

Tourist Turnout In many of the de stinations, the number of visitors in all seasons hahass significantly increased after the development works. Beypore break water is a fine exexaample,mple, where the local people and shop keepers have no doubt about the substantial increase in the number of visitors , that too in a location where only a portion of the infrastructure created is made operational.. For instance, Mr. Anzari, who has been at Beypore as an Assistant Executive Engineer of HED opines that the road blocks and the long queue of tourist vehicles in Beypore are an indicator of the increase in the number of visitors here.

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Hard System, Soft Structures The structures which need continuous maintenance like the fountains were very poorly maintmaintainedained in all the locations. The small water storage ponds constructed for the fountains are in a very poor state. The water collected during the rains stagnates in the ponds, coupled with the waste deposit ed by the visitors turned into breeding ground s for mosquitoes. The situation is not different in locations like Kappad where the project is transferred to DTPC. Likewise, the delicate panels, dummy roofing, granite seating etc are seen damaged eithereither by the local people or by the visitors. These instances give an impression that the existingexisting mechanisms under th e government are not capable of ensuring the continued operation of such ‘soft’ structures. So the government may think of an alternative arrangement for the continued operation and proper maintenance of the soft assets worth crores of rupees. The present operation and maintenance arrangement made in few localocationstions like Kappad beach under DTPC is really poor, and there is very little control over the assets after they have been leased out.

Value for Money After investing ` 72 crores on 26 sub projects, the Tourism Department and the DTPC have only leased out the cafeteria and the parking area to private c ontractors for a nominal amount. They have not seen to it that all the components are made functional.

Craft Shop at Beypore Fountain at Kappad beach The Department has neither given priority to the generation of returns from ththiiss investment nor for the provision of services to the visitors . As a result, for the last two years majority of the assets are kept idle and have started to get ruined. Being a government investment, that too as grant assistance from the central government, the authorities should havehave taken more care about returns, either in the form of social benefit or financia l returns as lease and rent.

There is no doubt, that the income generated from tthehe lease of the craft shop, cafeteria, stalls, parking area etc. will be sufficient to meet expensexpense ess for proper maintenance of the premises and assets in all the destinations. Neat and proper maintenance of the location and the assetsassets as envisaged by the project will also help attract more number of visitors to these locations. It is evident from the response of visitors that poor facifacilitieslities (including absence of urinals) act a s

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deterrents to a visit to these locations. The pathetic condition that prevails at present is a consequence of lack of commitment on the part of thethe authoritiesauthorities to overcome hurdles in a timely manner. In many locations, the authorities seem to have withd rawn from the project once the inauguration ceremony was over. Operation and Management It is really disappointing that the minimum operationoperation and management arrangements are not made in majority of the project locations even 3 -4 years after completion. Obviously, post project operation plan received low priority in the activity schedule of the Department. Alternatively, the Department could have been made some temporary arrangearrangementsments for the routine operation management to avoid d egradation of assets. It is surprising that hardly any step was taken to involve the local community to solve this problem.

Need for Standard Maintenance Plan The designs of the structures created under the project are elegant and the colour schemes too were selected by the arc hitects with extreme care. The Department has expendeexpendedd a reasonable amount of resources towards the outsourcing of consultancy service for the same. The design and colour schemes of all the structures provide a distinct appappearanceearance and pleasant feel. But in the absence of proper maintenance it is doubtful whether these designs and colour schemes will to survive. In the event of the leasing out of the structures to the SHGs of fishermen or toto other private parties, care should be taken to maintain the present colour schemes and to prevent construction of extensions that are not in tune with the original vision of the architects. The present state of the cafeteria at Beypore beach strengthens such apprehensions. This structure has been given on lease to a priva te party. The contractor has taken the liberty to change the colour scheme by painting it with glitteringlitteringg red colour to catch the attention of the visitors. The open dining area facing the backwaters too is enclosed with aluminum fabrication works which a gain remains as an eyesore.

Cafeteria at Beypore, Repainted and Altered Extension to Cafeteria at Kappad Beach In Kappad beach also, the individual who has taken the cafeteria on lease has started makmakinging temporary ext ensions to the building without aesthetic considerations and in violation of the overall design. This building was constructed in an elegant manner with polished laterite stone walls and

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antique lighting arrangements. The external view of this nice -looking building is covered with the extension made with dark blue polythene sheets.

Danger to the Walkways

In locations like Kappad, illegal sand mining from beneath the walkways pose greatgreat danger to the structure and there are possibilities of a collapse of the walk ways in the near future if mining activities continue unabated. There have been no initiatives on the part of the DDeepartmentpartment to develop mechanisms for maintenance and security of walkways walkways either officially or through community mobilization.

Need for Coordination With regard to coordination and convergence with other departments and their activities too, there are several gaps and inconsistencies. For instance, Thiruvanantahapuram Corporation is responsible for the routine cleaning work at Sham ghumugham beach. Daily cleaning is done on the sidesidess of the road in the beach area, but the walkways and the parking area constructed under TRP are not covered by Corporation workers. According to the local people the corporation workers used to clean thes e areas before the development works, but now are ababstainingstaining from the same as they consider this area as coming within the purview of the the Tourism Department. In the absence of cleaning, the area is strewn with litter and plastic waste.

In case of the beac hes in Kozhikode, the Department has not been able toto operationalise them due to the technical objection from the Port Department. Port Department claims that these beaches come under the jurisdiction of Kozhikode port, and refuserefuse to hand over the same. At the same time similar issues at Baypore port were sorted out and is is functioning at least partially with the assets being handed over to DTPC.

Buildings for craft shops and small sales outlets aarree constructed in many of the project sites. Even after 2 years these structures are kept idle and have started to fall apart. These outlets are lying waste even when many micro-enterprises established un der TRP by Fisheries D epartment in these areas are struggling to find outlets to sell their products and reach out to customers. Some of the structures could have been allotted to these groups after fixing the monthly re nt.

Visibility of TRP Intervention

Compared to TRP interventions executed by other DeparDepartments/Agencies,tments/Agencies, Tourism Department has given adequate importance to the question of visvisibilityibility of the funding source and agency. In all the locations visited by the Evaluation Team, it was found that im pressive display structures have been constructed in a prominent place in the touristtourist destination that provides all relevant details about the TRP intervention. As these locations are very popular tourist destinations, these display arrangements are sure t o catch the eye of the visitors and thus create a positive impression about the TRP interventions made by the government. As far as anyany rehabilitation programme of this kind is concerned, the question of visibility of the tangible results of the public exp enditure made is very

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crucial, as it is bound to create a positive impressimpressionion among the public about the project as well as the implementing and executing agencies.

Kamburam Beach, Kozhikode

Lamp Posts with No Light Lighting up the sites is inevitable for generating the envisaged outcome of the investment. The evenings are the prime time for tourists visiting thethe beach. At present, either the visitors are evacuated from the site by the security personnel by dusk or they withdraw by themselves. Considerable amount has been invested in all the sitsiteses for installation of numerous lamp posts, high mast lamps and low mast lamps. But it has been left idle as electricity connection has not been ob tained in majority of the places except for locations like Kollam, Beypore and Kappad. Need for External Support As in the case of design and execution, the re is no reason why the Department should not seek external support for operationalising all the assets and units established under the project. It is high time that the Department sorted out this issue by ttakiakingng the local fishermen community in to confidence.

The Complex Task of Beneficiary Selection The Department and the government have decided t o make the completed projects operational by handing them over to the SHGs of fishermen communities sincesince theyththeeyy are supposed to be the beneficiaries of these TRP investments. But selectiselectioonn of beneficiaries seems to be a complex task. It is learned that many people with vested commercial interests in these buibuilbuildingsldingsdings have started to form SHGs of fisher women with a view to take possession of these structures on subsidized rent at prime locations.

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2.4. Grading of Schemes Table No. 2.7. Grading of Schemes Five Areas of Performance No Score (Maximum Score -20 for each )

1 Project Concept and Planning 15

2 Project Monitoring and Achievement of Core Objectives 13

3 Co-ordination within and between Departments/Ag encies 9

4 Beneficiary Satisfaction, Participation and Community Mobilization 8

5 Innovations and Sustainability 7

Total Score 52 Grade Average *Poor = 20 and Below; Below Average = 21 -40; Average = 41-60; Good = 61-80; Excellent = 81 and Above

Project Concept and Planning The concept behind developing the tourism destinations in the coastal belt belt of the State under Tsunami Rehabilitation Programme for facilitating the overall economic development ofof the region is noteworthy and appreciable. The initiative has enough potential to open up new avenues of livelihood and income generation for the coastal population. Sub project plan and design for almost all the selected locations were prepared in tune with the field reality and site -specific needs. In addition to the development, it will also result in other larger fallouts like attracting more touriststourists to these locations and thus bringing the outside world closer to the coastal life and culture. Project Monitoring and Achievement of core objectives. The infrastructure developed in these tourist destinations are seen well finished and elegant. During implementation, the development works were closely monitoredmonitored by HED and Tourism department and both t he departments were receptive and responsive to the field -level responses and issues. Required a lterations were made during implementation considering site specific needs and alsoalso by foreseeing future scenario. Many of the structures are appropriate for a public venue, frequented by tourists from various parts of the state and the cocouuntry.ntry. Coordination within and Between Departments and Agencies Advocacy and coordination efforts that were needed for achieving the project goals were not at the desired l evel or intensity. In the post implementation periodperiod,period,, coordination between various stakeholders like Port Department, KSEB, local bodies and the Fisheries Department to make the structures operational was almost absent or lacking.lacking. During the planning and i mplementation period the activities were done at the head quarters of the Tourism Department, hence there was no great

Tourism Infrastructure BME-TRP

need for coordination except between HED, the impleimplemenmentingting agency, and PMU the funding agency. There were problems even at that level wh ich had resulted in fund shortage in many sites leading to litigation. The lack of coordination amonamongg the project stake holders was a major reason for these structures still lying idle for two years after the formal inauguration. However , the civil work ha s been completed in a good manner and that too, withwithiwithininn the project time frame. Beneficiary satisfaction, Participation and Community Mobilization The fishermen communities were supposed to be the majormajor beneficiaries of this project investment done as part of the rehabilitation endeavor. But the mobilizationmobilization of the community into functional groups for availing the benefits and for sustained operation of the infrastructure as envisaged in the project plan has not yet happened. The tourists visiting the sites with whom the Evaluation Team interacted also were unhappy about the lack of lighting arrangements, damaged structure of the unoccupied cafeteria, dirty toilets and other infrastructures in majority of the sites. At locations lliikeke Beypore and Kappad, the visitors as well as the vendors and shop keepers were very impressed even with the partially functioning amenities. All the ssttakeholdersakeholders agree that the walkways and the other beautification attempts of the department have givegivenn an elegant look to all the d estinations to attract more visitors. Innovation and sustainability The elegant design and pleasant colour schemes execuexecutedted by the Department for the civil structures stand apart from the routine government owned infrastinfrastructures.ructures. But these structures in many sites are left uncared and have started to ruin. In addition, the extension works done without aesthetic considerations by private parties who have taken the structure on lease, raise serious doubts about the sustainability of these structures. Above all, no institutional arrangements for the operationoperation and management have been made in majority of the locations.

Bhatt Road Beach, Kozhikode